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THE  LEGISLATIVE  CONTROL 
OF  STATE  NORMAL  SCHOOLS 


BY 
LAWRENCE  BENJAMIN  HILL,  Ph.  D. 

PROFESSOR  OF  EDUCATION 
WEST  VIRGINIA  UNIVERSITY 


NEW  YORK 
192  1 


COPYRIGHT  1921,  BY  LAWRENCE  B.  HILL 


Lfc 


ACKNOWLEDGMENTS 

THE  writer  is  indebted  to  Dean  James  E.  Russell,  of  Teach- 
ers College,  for  pointing  out  the  field  of  this  study ;  to  Pro- 
fessors William  C.  Bagley  and  David  Snedden,  of  Teachers 
College,  for  constructive  criticism,  guidance  and  encouragement ; 
and  to  his  many  normal  school  colleagues  for  assistance  in 
furnishing  the  data. 


CONTENTS 

Page 

INTRODUCTION 7 

CHAP.    I.    LEGISLATIVE  PROVISIONS  FOR  THE  CONTROL  OF 

STATE  EDUCATIONAL  INSTITUTIONS    ....       11 

The  Data 

Graphs 

Summary 

CHAP.    II.     SIGNIFICANCE  OF  DIFFERENT  TYPES  OF  BOARDS 

OF  CONTROL 86 

The  Function  of  a  Board 

Types  of  Boards 

Multiple  vs.  Unit  Boards 

Detailed  Provisions  for  a  Unit  Board 

Summary 

CHAP.  III.  PROVISIONS  RELATING  TO  TEACHER  TRAINING 
AGENCIES  PROPOSED  FOR  LEGISLATIVE  ENACT- 
MENT   124 

State  Board  of  Education 

Distinctive  Features  of  Proposed  Legislation 

CHAP.  IV.  RESULTS  OF  SUGGESTED  PROVISIONS    ....    131 
Details  of  Forms  Recommended 

APPENDIX  A.  TYPE  REPORTS 158 

APPENDIX  B.  COMPARATIVE  COSTS  163 


INTRODUCTION 

State-controlled  institutions  have  at  least  two  important  parts 
in  their  make-up.  The  one  part  consists  of  certain  regulative 
provisions  made  by  the  commonwealths  which  sanction  the  ex- 
istence of  such  institutions,  and  which  set  forth  in  very  general 
terms  a  few  provisions  for  their  control.  The  other  part  con- 
sists of  the  administrative  machinery  of  the  institution  itself, 
its  materials,  programs,  traditions,  standards  and  methods. 
The  latter  part  concerns  many  people;  the  first  part  compara- 
tively few.  The  many  often  realize  that  the  processes  of  the 
institution  are  influenced  by  the  first  part,  but  they  fail  to  see 
or  understand  how,  when,  or  why.  The  few  people  who  are  re- 
sponsible for  the  first  part  are  generally  well-disposed  towards 
the  many  and  intend  that  all  their  actions  shall  work  advan- 
tageously for  them;  yet  they  often  fail  to  realize  the  effect  of 
such  actions  upon  the  processes  of  the  institution  itself.  The 
importance  of  the  interplay  of  the  two  parts  is  often  overlooked, 
and  those  working  diligently  in  the  one  often  wonder  why  the 
other  is  not  more  efficient.  The  public  at  large  is  interested 
in  aims  and  results,  and  rightly  views  these  two  parts  of  in- 
stitutional life  as  essential  factors  working  as  one  unit  to  ac- 
complish the  originally  conceived  purpose. 

For  seven  years  the  writer  has  observed,  from  two  different 
positions  within  state  educational  institutions,  the  interplay  of 
the  two  parts  mentioned  above.  He  has  collected  evidence  that 
the  efficiency  of  a  state  educational  institution,  particularly 
one  whose  duty  it  is  to  train  teachers,  may  be  affected  by  the 
legislative  provisions  made  for  its  board  (or  boards)  of  control, 
by  the  board's  conception  of  its  own  duties,  and  by  the  ideal 
which  it  sets  for  the  personnel  of  the  institution,  especially  for 
the  chief  executive.  The  problem,  therefore,  is  to  show  how  the 
provisions  made  by  legislative  enactment  and  the  interpreta- 
tion of  these  provisions,  affect  teacher  training  agencies.  It  is 


8  Legislative  Control  of  State  Normal  Schools 

taken  for  granted  that  a  large  part  of  the  efficiency  of  any  edu- 
cational institution  is  due  to  the  persons  most  intimately  con- 
cerned with  its  work, — the  classroom  teachers  and  the  students. 
More  generally  speaking,  efficiency  is  accomplished  through 
the  teaching  that  the  institution  provides.  It  is  our  contention, 
however,  that  the  teaching  is  vitally  affected  by  the  provisions 
for  control,  and  especially  by  the  interplay  of  board  and  execu- 
tive head  of  school.  Out  of  this  accepted  assumption,  certain 
questions  arise: — What  is  the  best  type  of  board  that  a  state 
can  provide  by  legislative  enactment  for  the  control  of  its 
teacher  training  agencies?  What  details  should  be  included  in 
the  provisions  of  the  law?  What  kind  of  organization  should 
the  board  provide  for  its  own  work?  What  kind  should  it  pro- 
vide for  the  work  within  the  institution  itself?  What  evidences 
are  there  that  many  states  need  to  modify  their  legislative  pro- 
visions relating  to  the  control  of  teacher  training  agencies? 
What  advantages  would  come  to  these  institutions  from  such 
provisions  suggested  by  the  answers  to  these  questions? 

Most  of  the  material  relating  to  legislative  control  of  educa- 
tional institutions  is  found  in  the  statutes  of  each  state.  In 
every  case  the  special  compilation  of  school  laws  was  consulted 
as  a  help  in  interpreting  the  statutes.  The  provisions  for  edu- 
cational control  were  carefully  charted  as  found  in  Chapter  I; 
graphs  were  constructed  showing  the  relationship  of  the  differ- 
ent provisions  such  as  found  in  Chapter  II ;  these,  together 
with  certain  other  data  used  in  the  study  were  sent  to  two  or 
more  selected  men  in  administrative  positions  in  each  state  with 
the  request  that  they  check  each  item  for  accuracy,  and  supple- 
ment each  part  so  as  to  make  the  study  complete  and  typical 
for  their  own  state.  Much  of  the  objective  material  used  in 
Chapter  III  was  collected  while  the  writer  was  in  administrative 
work  in  a  state  normal  school  and  could  secure  it  at  first  hand. 
Other  schools  were  visited,  new  material  collected  and  the  old 
verified  in  this  way.  The  forms  suggested  for  use  by  boards  of 
control  and  by  institutions  were  constructed  out  of  practical  ex- 
perience, and  by  comparing  those  used  by  the  writer  with  simi- 
lar forms  collected  from  other  state  normal  schools.  These 


Introduction  9 

forms,  together  with  other  material,  are  on  file  in  Teachers 
College,  Columbia  University.  Many  of  the  opinions  quoted  in 
this  study  are  frank  statements  made  by  one  administrator  to 
another  rather  than  statements  worded  at  the  request  of  a  stu- 
dent. 

The  statutory  provisions  relating  to  the  control  of  educational 
institutions  have  been  collected  from  forty-four  states.  Since 
the  study  is  centered  upon  special  teacher  training  institutions, 
primarily  upon  state  normal  schools,  the  states  of  Delaware, 
Florida,  Nevada,  and  Utah  are  omitted  because  they  have  no 
typical  state-controlled  normal  schools.  The  data  contained  in 
Table  1  are  intended  primarily  to  throw  light  upon  the  manner 
of  controlling  state  normal  schools ;  hence,  the  board  controlling 
the  normal  is  placed  first  in  the  outline.  Boards  controlling 
state  universities  are  placed  second,  and  are  included  because 
of  the  activity  of  universities  in  training  teachers.  The  other 
boards  listed  are  boards  of  educational  or  financial  control,  and 
are  included  in  order  to  show  the  type  of  state  control  and  be- 
cause of  their  interrelationship  with  teacher  training  activities. 
The  boards  listed  include  practically  all  the  boards  provided 
by  each  state  for  educational  control.  Those  omitted  are  minor 
ones  which,  if  included,  would  not  affect  one's  understanding 
of  the  state's  type  of  control.  At  the  head  of  each  board  in  the 
list  is  placed  the  state  superintendent  or  commissioner  of  edu- 
cation because  of  the  relationship  which  he  sustains  to  many 
boards  of  control. 

The  method  of  procedure  in  presenting  the  problem  and  its  re- 
lated questions  was  (1)  to  select  and  exhibit  the  data  which  are 
germane  to  the  questions;  (2)  to  present  the  advantages  and 
disadvantages  of  the  details  involved;  (3)  to  present  authorita- 
tive opinions  and  studies  in  the  field  of  educational  and  business 
control  which  have  set  certain  criteria;  (4)  to  judge  by  these 
standards  and  criteria  the  efficiency  of  existing  forms  of  edu- 
cational control  of  teacher  training  agencies;  (5)  to  suggest 
provisions  for  future  legislative  enactment  for  the  control  of 
teacher  training  agencies;  (6)  to  set  forth  certain  advantages 
to  a  state-wide  program  for  training  teachers  resulting  from 
such  legislative  provisions. 


CHAPTER  I 

LEGISLATIVE    PROVISIONS   FOR   THE    CONTROL   OP 
STATE   EDUCATIONAL  INSTITUTIONS 

SECTION  A 
THE  DATA 

The  purpose  of  this  section  is  to  exhibit  the  main  legislative 
provisions  that  relate  to  the  control  of  state  normal  schools  and 
state  universities,  and  to  the  control  of  other  state  educational  in- 
stitutions. All  existing  legislative  enactments  relating  to  state 
normal  schools  are  represented  in  the  data.  Most  of  the  legis- 
lative provisions  and  constitutional  enactments  relating  to  state 
universities  are  included.  Sufficient  examples  of  legislation  re- 
lating to  other  state  educational  institutions  are  given  to  set 
forth  clearly  the  type  of  general  educational  control  in  each 
state.  It  should  be  noted  that  the  outline  presented  in  Table  1 
provides  seven  items,  each  more  or  less  important  for  the  control 
of  educational  institutions,  as  will  be  shown  later  in  the  study. 
Under  the  name  of  each  state  will  be  found  (1)  the  exact  title  of 
each  governing  body;  (2)  a  brief  statement  of  the  function  of 
that  body;  (3)  the  number  of  members,  distinguishing  between 
regular  and  ex  officio  members;  (4)  the  qualifications  (wherever 
they  were  listed  in  the  statutes)  ;  (5)  the  method  of  choosing  the 
members;  (6)  the  length  of  term;  (7)  the  compensation. 

Wherever  a  blank  space  is  found  following  the  title  of  a  gov- 
erning body  it  may  be  inferred  by  the  reader  that  the  caption 
heading  does  not  apply  to  the  governing  body,  or  that  the  in- 
formation called  for  by  the  heading  could  not  be  secured  through 
reasonable  effort. 


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Legislative  Control  of  State  Institutions  55 

SECTION  B 
GRAPHS  ANALYZING  THE  DATA 

In  Section  B  will  be  found  a  series  of  graphs  made  by  analyz- 
ing the  data  in  Section  A,  showing  the  source  of  authority,  how 
each  board  is  provided,  the  relationship  which  these  boards 
sustain  to  each  other,  and  the  relationship  which  the  state  super- 
intendent and  governor  sustain  to  each  board.  A  continuous 

line in  the  graphs  indicates  at  its  beginning  the 

source  of  authority  and  at  its  end  its  creation  through  election 
or  appointment.  A  broken  line shows  at  the  be- 
ginning its  source  of  authority,  and  at  its  end  its  cre- 
ation, but  in  each  case  the  source  of  authority  retains  an 
ex-offido  relationship  to  the  board  created.  In  some  cases 
he  is  ex-officio  president,  in  some  he  is  secretary,  and  in 

others    he    is    a    member.      A    dotted    line 

indicates  ex-officio  relationship  only;  it  may  be  that  of  pres- 
ident, secretary,  or  member.  Thus,  in  Alabama  the  people  elect 
the  governor  and  the  state  superintendent.  The  governor  ap- 
points the  state  board  of  control.  He  also  appoints  four  other 
boards  and  retains  an  ex-officio  membership  in  each.  The  state 
council  of  education  is  made  up  entirely  of  ex-officio  members. 
The  state  superintendent  is  an  ex-officio  member  of  the  state 
council  of  education,  and  of  the  state  normal  school  board.  In 
comparing  the  different  graphs  the  different  state  attitudes  to- 
wards educational  control  will  readily  be  noted.  A  striking 
contrast  may  be  seen  in  the  unit  vs.  the  multiple  type  of  control 
by  comparing  Vermont  and  Mississippi. 


56  Legislative  Control  of  State  Normal  Schools 

ALABAMA 


ARIZONA 


Legislative  Control  of  State  Institutions 
ARKANSAS 


57 


CALIFORNIA 


58  Legislative  Control  of  State  Normal  Schools 

COLORADO 


•  •'-[si/M^n 


CONNECTICUT 


Legislative  Control  of  State  Institutions 
GEORGIA 


59 


IDAHO 


60  Legislative  Control  of  State  Normal  Schools 

ILLINOIS 


INDIANA 


Legislative  Control  of  State  Institutions  61 

IOWA 


KANSAS 


62  Legislative  Control  of  State  Normal  Schools 

KENTUCKY 


LOUISIANA 


Legislative  Control  of  State  Institutions 
MAINE 


63 


MARYLAND 


64  Legislative  Control  of  State  Normal  Schools 

MASSACHUSETTS 


COTTI  JEduo.    _ y.. 


MICHIGAN 


Legislative  Control  of  State  Institutions 
MINNESOTA 


65 


MISSISSIPPI 


66  Legislative  Control  of  State  Normal  Schools 

MISSOURI 


MONTANA 


Legislative  Control  of  State  Institutions 
NEBRASKA 


67 


NEW  HAMPSHIRE 


dor. 


68 


Legislative  Control  of  State  Normal  Schools 
NEW  JERSEY 


NEW  MEXICO 


Legislative  Control  of  State  Institutions 
NEW  YOKK 


69 


NORTH  CAROLINA 


70  Legislative  Control  of  State  Normal  Schools 

NORTH  DAKOTA 


OHIO 


Legislative  Control  of  State  Institutions 
OKLAHOMA 


71 


OREGON 


72  Legislative  Control  of  State  Normal  Schools 

PENNSYLVANIA 


RHODE  ISLAND 


Legislative  Control  of  State  Institutions  73 

SOUTH  CAKOLINA 


SOUTH  DAKOTA 


74  Legislative  Control  of  State  Normal  Schools 

TENNESSEE 


TEXAS 


Legislative  Control  of  State  Institutions 
VERMONT 


75 


VIRGINIA 


si* t*  ej. &.        K«..  /*,, „<(  v.t.t       B:f  *•*•?       »"-'  "'-'' 


76  Legislative  Control  of  State  Normal  Schools 

WASHINGTON 


WEST  VIRGINIA 


Legislative  Control  of  State  Institutions 
WISCONSIN 


77 


WY03IING 


Treasurer 

G-et-frntt 

78  Legislative  Control  of  State  Normal  Schools 

SECTION  C 
SUMMARY  OF  THE  DATA 

In  this  section  will  be  found  tables  showing  a  summary  of  the 
data  presented  in  detail  form  in  Section  A,  and  of  the  salient 
points  shown  in  graphic  form  in  Section  B.  An  attempt  has  been 
made  to  select  and  arrange  the  facts  so  as  to  throw  light  upon  the 
questions  raised  by  the  study. 

In  Table  2  will  be  found  the  main  types  of  institutional  con- 
trol. These  are,  in  the  main,  state  or  local,  unit  or  multiple. 
These  types  hold  for  the  general  control  of  all  state  institutions, 
for  the  general  control  of  all  teacher  training  agencies,  and  for 
the  control  of  special  teacher  training  agencies  such  as  depart- 
ments of  education  and  normal  schools.  Later  in  the  study  a 
form  of  multiple  control  will  be  referred  to  as  a  dual  multiple 
type.  This  cannot  be  shown  in  this  table,  but  will  be  described 
in  its  proper  setting. 

In  Table  3  the  different  methods  of  choosing  board  members, 
the  number  of  members  and  the  length  of  term  will  be  found 
listed  by  states.  This  table  should  read :  Alabama  has  a  normal 
school  board  composed  of  six  regular  and  two  ex-officio  members 
appointed  by  the  governor  for  a  term  of  twelve  years ;  a  finan- 
cial board  composed  of  three  regular  members  appointed  by  the 
governor  for  an  indefinite  term.  Tables  4,  5  and  6  will  present 
frequency  distributions  of  the  facts  presented  in  Table  3  under 
the  head  of  number  of  members  and  length  of  term.  The  first 
part  of  each  division  in  Table  4  should  read  as  follows:  One 
state  has  two  regular  members  on  its  normal  school  board,  two 
states  have  three  regular  members;  fourteen  states  each  have 
one  ex-officio  member,  seven  have  two  each ;  two  states  have  each 
a  total  of  three  members,  two  have  four ;  in  one  state  the  length 
of  term  is  two  years,  in  one  the  term  is  four  years. 

Owing  to  the  part  which  the  unit  type  of  board  of  control 
plays  in  this  study  the  states  which  have  this  type  of  control 
are  exhibited  in  separate  tables.  Such  an  exhibit  will  be  found 
in  Table  7,  followed  by  a  frequency  distribution  of  the  number 
of  members  and  length  of  term  in  Table  8. 


Legislative  Control  of  State  Institutions 


79 


TABLE  2 

SUMMARY  OF  TTPES  OF  STATE  INSTITUTIONAL  CONTROL 
STATE  (S)  vs.  LOCAL  (L)  AND  UNIT  (U)  vs.  MULTIPLE  (M) 


General 

Teacher  Tr'g 
Agencies 

Spec.  Teacher  Trn'g  Agn'es 

Depts.    Educ.  ||  Nor.  Schools 

S 

L 

D 

M 

S 

L 

U 

M 

S 

L 

U 

M 

S 

L 

D 

M 

Alabama  

X 

X 

X 

X 

X 

X 

X 

Arizona  

o 

0 

X 
X 

0 
X 

0 

X 

X 

X 

X 

Arkansas  

X 

X 

X 

X 

X 

California  

0 

0 

X 
X 

0 
X 

0 

X 

X 

X 

X 

Colorado  

X 

X 

X 

X 

X 

Connecticut  

X 

X 

X 

X 

X 

X 

X 

Georgia  

0 

0 

X 

0 
X 

0 

X 

X 

X 

X 

Idaho  

X 

X 

X 

X 

X 

X 

Illinois  

X 

X 

X 

X 

X 

X 

X 

Indiana.  

X 

X 

X 

X 

X 

X 

X 

Iowa  

X 

X 

X 

X 

X 

X 

X 

Kansas  

X 

X 

X 

X 

X 

X 

X 

Kentucky  

X 

X 

X 

X 

X 

X 

X 
X 

X 

Louisiana  

X 

X 

X 

X 

X 

X 

Maine  

X 

X 

X 

X 

X 

X 

X 

Maryland  ....              

X 

X 

X 

X 

X 

X 

X 

Massachusetts  

X 

X 

X 

X 

X 

X 

X 

Michigan.    

X 

X 

X 

X 

X 

X 

X 

Minnesota  .... 

X 

X 

X 

X 

X 

X 

X 

Mississippi  .    .. 

X 

X 

X 

X 

X 

X 

X 

Missouri  ..    . 

0 

0 

X 
X 

0 
X 

0 

X 

X 

X 

X 

Montana  .                  

X 

X 

X 

X 

X 

Nebraska  

X 

X 

X 

X 

X 

X 

X 

New  Hampshire  

X 

X 

X 

X 

X 

X 

X 

New  Jersey  

X 

X 

X 

X 

X 

X 

X 

New  Mexico_ 

0 

0 

X 

0 
X 

0 

X 

X 

X 

X 

New  York.  

X 

X 

X 

X 

X 

X 

North  Carolina.  ... 

0 

0 

X 

0 
X 

0 

X 

X 

X 

X 

North  Dakota  

X 

X 

X 

X 

X 

X 

Ohio._.'  

X 

X 

X 

X 

X 

X 

X 

Oklahoma  

X 

X 

X 

X 

X 

X 

X 

Oregon., 

X 

X 

X 

X 

X 

X 

X 

Pennsylvania  

0 

0 

X 
X 

0 
X 

0 

X 

X 

X 

X 

Rhode  Island  

X 

X 

X 

X 

X 

South  Carolina  

X 

X 

X 

X 

X 

X 

X 

South  Dakota  

X 

X 

X 

X 

X 

X 

X 

Tennessee  

X 

X 

X 

X 

X 

X 

X 

Texas  

X 

X 

X 

X 

X 

X 

X 

Vermont....-  

X 

X 

X 

X 

X 

X 

X 

Virginia  

X 

X 

X 

X 

X 

X 

X 
X 
X 

Washington  

0 

0 

X 
X 

0 
X 

0 

X 

X 

X 

West  Virginia—  

X 

X 

X 

X 

Wisconsin  

X 

X 

X 

X 

X 

X 

X 

Wyoming  

X 

\ 

X 

\ 

X 

X 

X 

Totals  

36 

'.» 

:;.-. 

36 

s 

11 

;:5 

11 

36 

s 

U 

12 

S— State 
L — Local 
U— Unit 
M— Multiple 


O— Partly  State  and  Partly  Local 

X — Type  of  Control  Shown  by  Heading. 


80 


Legislative  Control  of  State  Normal  Schools 


TABLE  3 

METHODS  OF  CHOOSINO  BOARD  MEMBERS,  NUMBER  OF  MEMBERS,  AND  THE  LENGTH  OF 
TERM  FOR  THE  DIFFERENT  KINDS  OF  BOARDS 

N  stands  for  normal  board.    U  stands  for  university  board.    F  stands  for  financial  board.    0  stands 
for  all  others.    Unit  boards  listed  in  Table  7. 


Methods  of  Choosing  Members 

Number  of  Members 

Length  of 
Term 

Appt.  by 
Governor 

Appt.  by 
Other 
Authority 

Elected 
by 
People 

Regular 

Ex-Officio 

Total 

N 

D 

t 

0 

N 

D 

t 

0 

N 

U 

F 

0 

N 

D 

F 

0 

N 

U 

p 

0 

N 

D 

F 

Q 

N 

U 

1 

0 

Alabama 

X 

- 

X 
X 

X 

6 

12 

3 

12 
12 

2 

2 

2 
2 

10 

8 

14 

3 

14 
14 
10 

12 

12 

12 
12 

Arizona  . 

X 

X 

X 

X 

2 

8 

3 
2 

1 

1 

4 
1 

3 

9 

7 

3 

2 

8 

Arkansas  

X 

X 

X 
X 

4 

6 

5 
3 

3 

2 

7 

7 

5 
3 

4 

10 
6 

California  

X 

X 

X 

X 

5 

15 

3 

7 

2 

7 

1 

7 

22 

3 

8 

4 

16 

4 

Colorado 

X 

X 

X 

6 

6 

8 

1 

1 

7 

6 

0 

§ 

6 

4 

Georgia.... 

X 

X 

X 
X 

5 

20 

5 
5 

2 

2 
1 

7 

20 

7 
6 

4 

8 

4 
4 

Illinois 

X 

X 

X 

8 

9 

3 

2 

11 

9 

3 

6 

6 

Indiana 

X 

X 

X 
X 

4 

8 
9 

6 

1 

7 

5 

8 
9 

13 

4 

3 
3 

4 

Iowa  

X 
X 

•2 

3 
4 

3 

6 

4 

Kansas  

X 

9 

',; 

2 

Legislative  Control  of  State  Institutions 

TABLE  3— Continued 


81 


Methods  of  Choosing  Members 

Number  of  Members 

Length  of 
Term 

N    U    F    0 

Appt.  by 
Governor 

Appt.  by 
Other 
Authority 

Elected 
by 
People 

Regular 

Ex-Officio 

Total 

N 

r 

F 

o 

N 

u 

F 

0 

N 

0 

F 

() 

N 

U 

F 

0 

N 

U 

F 

0 

N 

U 

F 

0 

Kentucky  

X 

X 

X 

4 

12 

2 

1 

a 

1 

6 

I,') 

:•; 

4 

6 

Louisiana  

X 

X 

X 

6 

1-2 

r, 

:5 

3 

1 

<» 

15 

6 

6 

4 

5 

Maine 

X 

X 

X 

4 

5 

2 

l 

3 

1 

5 

8 

3 

4 

7 

3 

Michigan.-  

X 

X 

X 

3 

8 

6 

1 

4 

8 

6 

6 

8 

6 

Minnesota.-  

X 

X 

X 

s 

9 

c 

€ 

1 

3 

9 

12 

.-. 

•j 

4 

6 

5 

Mississippi  

X 

X 

X 

X 

X 

s 

8 

4 

c 
8 

2 

2 

1 
1 

10 

10 

* 

a 

0 

6 

0 

4 

Missouri  

X 

X 

6 

9 

1 

7 

9 

6 

6 

Montana 

X 

2 

1 

3 

4 

Nebraska...-  

X 

X 

5 

6 

2 

7 

6 

5 

0 

New  Jersey  

X 

X 

X 

7 

:< 

1 

4 

s 

7 

s 

2 

New  Mexico  

X 

X 

X 
X 
X 

5 

5 

i 
- 

- 

c 

2 

:. 

5 

7 

5 
6 

4 

4 

4 
4 
4 

North  Carolina. 

X 
X 
X 

X 

X 

ti 

100 

w 

4 
f 

1 

I 
1 

ti 

100 

4 

5 
7 

8 

8 

4 
6 

4 

82  Legislative  Control  of  State  Normal  Schools 

TABLE  3— Continued 


Methods  of  Choosing  Members 

Number  of  Members 

Length  of 
Term 

Appt.  by 
Governor 

Appt.  by 
Other 
Authority 

Elected 
by 
People 

Regular 

Ex-Officio 

Total 

N 

r 

t 

0 

N 

u 

F 

0 

N 

U 

K 

0 

N 

U 

i' 

0 

N 

U 

F 

0 

N 

U 

F 

0 

N 

U 

F 

0 

Ohio 

X 

X 
X 
X 

5 

•27 
8 
7 

5 

27 
8 
t 

r, 

9 

7 

Oklahoma 

X 

X 

X 
X 
X 
X 

6 

7 

4 
4 
4 
1 

1 

1 
1 
1 

4 

7 

7 

5 
5 
5 

5 

4 

7 

5 
5 

4 

Oregon. 

X 

X 

X 
X 

6 

10 

9 
4 

3 

4 

3 

9 

10 

13 
7 

(i 

Pennsylvania-- 

X 

X 

9 

6 

1 

0 

7 

3 

6 

Rhode  Island..  - 

X 

X 

3 

6 

2 

2 

5 

s 

6 

South  Carolina- 

X 

X 

X 

X 

8 

8 

13 
7 

3 

3 

2 

11 

11 

13 
9 

6 

6 

4 

4 

Tennessee  .. 

X 

X 

X 

9 

10 

« 

1 

4 

10 

14 

5 

6 

12 

Texas          

X 

X 

X 

X 
X 
X 

5 

9 

3 

6 
8 
7 

1 

1 

2 

6 

9 

3 

6 
9 
9 

6 

6 

8 
2 

Virginia    

X 

X 

X 

X 

12 

9 

10 
3 

2 

1 

1 

3 

14 

10 

11 
6 

4 

4 
4 

Washington.  

X 

X 

X 
X 

3 

7 

3 
5 

3 

3 

7 

6 
5 

6 

6 

2 
6 

Legislative  Control  of  State  Institutions 

TABLE  3— Continued. 


83 


Methods  of  Choosing  Members 

Number  of  Members 

Length  of 
Term 

Appt.  by 
Governor 

Appt.  by 
Other 
Authority 

Elected 
by 
People 

Regular 

Ex-Officio 

Total 

N 

u 

F: 

o 

N 

U 

F 

0 

N 

U 

F 

0 

N 

U 

F 

0 

N 

U 

J 

0 

N 

U 

F 

0 

N 

I 

1 

0 

West  Virginia.... 

X 

3 

3 

8 

Wisconsin  

X 

X 

X 

10 

2 

1 

2 

3 

11 

r, 

.') 

8 

2 

Wyoming  

X 

X 

6 

9 

1 

2 

7 

11 

8 

G 

Total  

26 

24 

4 

39 

3 

5 

0 

10 

1 

4 

0 

1 

6 

12 

3 

5.2 

1.6 

2.6 

0 

7.1 

7.2 

18 

3 

fl.t 

5.5 

6.8 

6 

4.9 

TABLE  4 

SHOWING  FKEQUENCY  DISTRIBUTION  OF  REGULAR,  EX-OFFICIO,  AND  TOTAL  NUMBER  OF  MEMBERS 
OF  NORMAL  SCHOOL  BOARDS;  ALSO  THE  LENGTH  OF  TERM 


Regular 
Frequency 
1 

No. 

2 

Ex-Officio 
Frequency 
14. 

No. 
1 

Total 
Frequency 
2 

No. 
3 

Term 
Frequency^ 
1 

Yeara 
2 

2 

3 

7 

2 

2.. 

....    4 

1    ..„ 

3 

4 

4 

4. 

3 

5 

5 

11 

..    4 

6 

5 

2 

...    6 

4   

..„  5 

8 

6 

8.      .. 

7 

13      

6 

1 

7 

2 

8 

1  

7 

3 

8 

3             .     .  . 

9 

1  

8 

3  _ 

9 

1    

10 

1  

12 

1  _. 

10 

3   

......  11 

1  , 

12 

1  .  _       

i  12 

1_. 

....14 

84  Legislative  Control  of  State  Normal  Schools 

TABLE  5 

SHOWING  FREQUENCY  DISTRIBUTION  OF  REGULAR,  EX-OFFICIO,  AND  TOTAL 

NUMBER  OF  MEMBERS  OF  COLLEGE  AND  UNIVERSITY  BOARDS; 

ALSO  THE  LENGTH  OF  TERM 


Regular 
Frequency 
1         _    .. 

No. 
3 

Ex-Officio 
Frequency 
2  

No. 
1 

Total 

Frequency 
1  

No. 
....5 

Term 
Frequency 
1  

No. 

?, 

3 

5 

6 

2 

2  

....6 

2  

3 

2 

6 

5 

3 

4  

....7 

2  

4 

3 

7 

1             

4 

4  

....8 

10  

6 

6 

g 

1 

7 

5  

....9 

3  

7 

6 

9 

3 

10 

4  

8 

2 

10 

2  

..11 

1  

q 

3 

12 

2 

14 

2  

ifl 

1 

15 

1  

..15 

1 

16 

1 

20 

1 

20 

1 

27 

1  

..22 

1 

100 

1 

27 

1.... 

100 

NOTE:     The  four  financial  boards  found  in  this  study  have  three  mem- 
bers each;  no  ex-officio  members;  the  members  serve  for  terms  of  six  years. 


TABLE  6 

SHOWING  FREQUENCY  DISTRIBUTION  OF  REGULAR,  EX-OFFICIO,  AND  TOTAL 
NUMBER  OF  MEMBERS  OF  BOARDS  OTHER  THAN  NORMAL  SCHOOL,  COL- 
LEGE AND  UNIVERSITY  BOARDS;  ALSO  THE  LENGTH  OF  TERM 


Eegular 
Frequency 
1  

No. 
....1 

Ex-Officio 
Frequency            No. 
16                         1 

Total 

Frequency 
9 

No. 
3 

Term 
Frequency 
4     

No. 

9, 

6 

2 

7                     2 

1 

4 

1 

T 

8  

....3 

5                     3 

12 

...5 

18  

4 

6 

4 

5                     4 

8 

6 

5  

5 

10 

5 

1                     7 

6 

7 

5 

6 

6  

6 

1                    9 

2 

....3 

1  

8 

3  

....7 

2                   10 

6       

....9 

1 

10 

3  

8 

1 

..10 

2 

12 

1.. 

.....9 

1         

..11 

1  

...10 

3 

..13 

2  

...12 

2.... 

-14 

Legislative  Control  of  State  Institutions 

TABLE  7 


85 


SHOWING  METHODS  OF  CHOOSING  BOARD  MEMBERS,  NUMBER  OF  MEMBERS, 

AND  LENGTH  OF  TERM  IN  STATES  WHERE  THE  UNIT  TYPE  OF 

CONTROL  FOR  TEACHER  TRAINING  AGENCIES  PREVAILS 


Method  of  Choosing 
Members 

Number  ol  Members 

Length 
of 
Term 

Appt. 

rT 
Gov. 

Appt. 
by 

Other 
Auth'y 

Elect. 

Regular 

Ex-oflicio 

Total 

Connecticut   

x 

X 
X 
X 
X 
X 
X 
X 

X 
X 
X 
X 

X 

9 

8 
9 
3 
7 
6 
8 
5 
12 
3 
5 
5 
6 

1 
1 
1 

3 
1 

2 
1 

9 
9 
9 
4 
7 
7 
11 
6 
12 
5 
5 
5 
7 

6 
5 
6 
4 

7 
3 
4 
5 
12 
6 
6 
5 
6 

Idaho    

Iowa  

Kansas  ,  

Maryland    

Massachusetts  

Montana    

New   Hampshire    

New  York  

North  Dakota  

South  Dakota       

Vermont    

West  Virginia  

Total    

12 

1 

0 

Median  1  Median 
6      I       1 

Median 

7 

Median 
6 

TABLE  8 

SHOWING  FREQUENCY  DISTRIBUTION  OF  NUMBER  OF  MEMBERS,  AND  LENGTH 

OF  TERM  IN  STATES  WHERE  THE  UNIT  TYPE  OF 

CONTROL  PREVAILS 


Eegular 
Frequency      No. 


Ex-Offido 
Frequency  No. 


3 

.....5 
....6 


1 - 7 

2 8 

2 9 

1 12 


Total  j 
Frequency 
1 

Vwmber 
No. 
4 

3  

...  .      5 

1  

6 

3  

7 

3  ..    .„ 

9 

1  

11 

1.. 

....12 

Term 
Frequency        No. 


CHAPTER  II 

SIGNIFICANCE   OF   DIFFERENT   TYPES   OF   BOARDS 
OF  CONTROL 

By  reference  to  Table  2,  Section  C,  Chapter  I,  it  will  be  seen 
that  boards  for  the  general  control  of  state  educational  institu- 
tions, for  the  control  of  all  state  teacher  training  agencies,  and 
for  the  control  of  special  teacher  training  agencies,  may  be  clas- 
sified as  state  or  local,  unit  or  multiple  boards.  In  a  few  states 
both  state  and  local  boards  are  found,  that  is,  state  boards  for 
some  institutions  and  local  boards  for  others.  For  the  general 
control  of  state  institutions  this  is  true  in  Arizona,  California, 
Georgia,  Missouri,  New  Mexico,  North  Carolina,  Pennsylvania 
and  Washington.  The  other  thirty-six  states  have  typical  state 
boards  for  the  control  of  their  state  educational  institutions. 
For  the  control  of  state  normal  schools  the  same  thirty-six  states 
provide  some  form  of  state  board  of  control  while  the  eight  men- 
tioned above  have  local  boards.  Thirty-two  states  have  unit 
boards  for  the  control  of  state  normal  schools  while  twelve  have 
multiple  boards  of  one  form  or  another.  In  this  connection  it 
must  be  noted  that  only  thirteen  states  provide  a  unit  board  for 
the  control  of  all  state  teacher  training  agencies,  while  thirty- 
one  states  have  multiple  boards  for  such  institutions.  A  list  of 
the  states  having  unit  boards  will  be  found  in  Table  7,  page  85. 

THE  FUNCTIONS  OF  A  BOARD 

Before  attempting  to  answer  our  first  question,  which  has  al- 
ready been  stated, — What  is  the  best  type  of  board  a  state  can 
have  for  its  normal  schools  and  other  teacher  training  agencies  ? 
— it  is  necessary  to  review  the  best  authoritative  opinions  and 
studies  on  the  duties  of  boards  of  control.  The  number  of  such 
opinions  and  studies  relating  to  boards  whose  particular  func- 
tions are  to  control  teacher-training  institutions  is  limited,  yet 
such  as  relate  to  similar  boards  are  significant. 


Significance  of  Different  Types  of  Boards  87 

Cubberley  says: 

"A  school  board  is  elected  primarily  as  a  board  of  school  control,  to 
determine  school  policies,  select  experts,  approve  new  undertakings, 
and  determine  expenditures.  .  .  .  Freed  from  the  details  of  school 
organization  and  administration,  and  from  the  pulls  and  influences 
which  surround  detailed  work  on  many  of  the  larger  features  of  the 
administrative  problem,  the  board  is  now  free  to  devote  its  energies 
to  the  problem  of  its  work  as  a  board  for  school  control.  These  relate 
to  the  selection,  from  time  to  time,  of  its  expert  advisers  ....  the 
selection  of  school  sites,  always  with  the  larger  future  needs  in  mind; 
the  determination  of  the  annual  budget  and  the  tax  levy;  the  con- 
sideration of  the  expansion  of  the  school  system;  the  prevention  of 
legislation  by  the  city  or  by  the  legislature  which  is  against  the  best 
interests  of  the  schools  under  their  control;  and  the  proper  presenta- 
tion to  the  people  whom  they  represent,  of  the  work  and  needs  of  the 
schools  and  the  policies  of  the  school  department."1 

One  of  the  most  significant  studies  relating  to  the  duties  of  a 
city  school  board  was  made  by  W.  W.  Theisen,  who,  with  the  as- 
sistance of  eighty  students  in  educational  administration  and 
other  schoolmen,  prepared  a  list  of  nineteen  duties  which 
boards  of  education  are  supposed  to  perform.  This  list  was 
submitted  to  and  ranked  by  531  judges.  The  first  eleven  duties 
are  given  here  in  order  of  their  importance: 

1.  Select  the  chief  executive  officer  and  support  him  in  the  dis- 
charge of  his  duties. 

2.  Pass  upon  the  annual  budget  for  maintenance  prepared  for  the 
chief   executive   and   his   assistance    ("budget   including   sources 
and  amount  of  revenue  available  as  well  as  expenditures"). 

3.  Debate  and  pass  upon  recommendation  of  chief  executive  for  ad- 
ditional capital  outlays — building  sites,  improvements,  and  deter- 
mine the  means  of  financing  such  outlays,  e.  g.,  bonds,  loans. 

4.  Advise  with  the  chief  executive,  affording  a  group  judgment,  on 
his    recommendations    for   extensions    or    readjustments    of   the 
scope  of  educational  activities. 

5.  Appoint — upon    nomination    and    recommendation    of   the    chief 
executive — the  teachers,  principals,  and  supervisors. 

6.  Determine,  after  consultation  and  discussion  with  the  chief  ex- 
ecutive, the  schedule  of  salaries. 

7.  Require  and  consider  report  of  the  business  transacted  or  pend- 
ing and  of  the  financial  status  of  the  system. 

'Cubberley,  E.  P.,  Public  School  Administration,  pp.  118-19. 


88  Legislative  Control  of  State  Normal  Schools 

8.  Require  and  discuss  the  report  of  the  chief  executive  concerning 
progress  of  the  schools — in  terms  of  achievements  of  the  pupils, 
teachers,  supervisors. 

9.  Adopt,  upon  consultation  with  the  chief  executive,  a  set  of  by- 
laws or  rules  for  the  government  of  the  school  system,  i.e.,  desig- 
nate   authority    of    executive    and    administrative    officers,    and 
duties  to  be  performed  by  the  board  or  its  committees. 

10.  Pass  upon  architect's  plans,  approved  by  the  chief  executive  and 
his  assistants,  for  buildings  that  have  been  authorized. 

11.  Represent  needs   of  the  schools   before   city  authorities   or  the 
legislature. 

Theisen  further  states  that  "When  the  judgments  of  business 
men  and  board  members  are  considered  separately,  though  in- 
sufficient in  number  to  warrant  positive  conclusions,  we  find  lit- 
tle change  from  the  order  above  in  the  relative  rank  of  the  dif- 
ferent duties."2 

In  a  study  based  upon  an  examination  of  the  tax-supported 
normal  schools  in  the  state  of  Missouri,  we  find  this  statement: 
"The  all-important  business  of  a  board  is  to  keep  a  first-class 
executive  at  the  head,  and  then  the  less  government  the  better. ' >s 
In  the  same  publication  there  is  a  quotation  from  a  former 
board  member  who  says:  "It  is  also  its  [the  board's]  duty  to 
lead  the  community  to  recognize  what  is  best  in  education.  As 
the  board  represents  a  culture  higher  than  the  general  culture 
of  the  community,  and  as  its  closer  relations  with  the  school  and 
supervising  officers  give  it  a  wider  and  better  view  than  the 
view  of  the  community,  the  work  of  the  board  becomes  directly 
educative,  and  its  duty,  manifestly,  is  to  inform  and  direct  the 
community."4  The  report  further  affirms  that  "If  these  prin- 
ciples hold  of  a  municipal  school  system,  they  should  be  doubly 
sacred  in  a  higher  professional  institution."5 

Applying  these  principles  to  state-controlled  teacher  training 
agencies  it  would  follow  that  the  main  duties  of  the  board,  in 
addition  to  selecting  the  chief  executive,  are  to  secure  and  make 
available  the  funds  for  running  the  institution;  to  educate  the 
community  (in  the  large)  to  the  eager  support  of  the  institu- 

"Theisen,  W.  W.,  The  City  Superintendent  and  the  Board  of  Education, 
p.  31. 

'Bulletin  No.  14,  p.  46,  The  Carnegie  Foundation  for  the  Advancement  of 
Teaching.  'Ibid.  *Ibid. 


Significance  of  Different  Types  of  Boards  89 

tion ;  to  assist  those  closely  connected  with  the  instructional  pro- 
cesses in  redefining  the  purposes  of  the  institution  in  the  light 
of  the  state- wide  experience  they  are  able  to  bring;  to  provide 
ways  and  means  of  handling  in  a  most  economical  and  effective 
manner  the  details  of  their  own  office  and  the  office  of  the  chief 
executive.  Further  reasons  for  the  acceptance  of  these  prin- 
ciples will  be  seen  in  the  presentation  of  the  advantages  and  dis- 
advantages of  the  different  types  of  boards  of  control. 

In  order  to  show  clearly  that  these  principles  are  not  recog- 
nized in  the  provisions  for  the  control  of  teacher  training  agen- 
cies made  by  legislative  enactment,  we  shall  present  types  of 
such  provisions,  from  two  states,  and  excerpts  from  others. 

The  Arizona  legislature  makes  the  following  provisions  for  the 
duties  of  the  board  controlling  its  normal  schools: 

"Said  boards  shall  have  power  to  appoint  a  principal  and  an  as- 
sistant to  take  charge  of  their  respective  schools,  and  such  other 
teachers  and  officers  as  may  be  required  in  such  schools,  and  fix  the 
salary  of  each,  and  prescribe  their  several  duties.  They  shall  also 
have  power  to  remove  either  the  principal,  assistant,  or  teachers,  and 
appoint  others  in  their  stead.  They  shall  prescribe  the  various  books 
to  be  used  in  said  schools  and  make  all  regulations  and  by-laws  neces- 
sary for  the  good  government  and  management  of  the  same. 

"The  said  boards  shall  have  power  to  ordain  such  rules,  regulations, 
and  requirements,  for  admission  of  pupils  to  their  respective  schools 
as  they  shall  deem  necessary  and  proper.  They  may  in  their  discre- 
tion require  any  applicant  for  admission  to  sign  and  file  with  the 
board  governing  the  institution  to  which  admittance  is  sought  a 
signed  declaration  of  intention  to  follow  the  business  of  teaching 
schools  in  the  state.  The  said  boards  shall  have  power  to  prescribe 
any  tuition,  fees  and  charges,  that  may  be  necessary  or  expedient  in 
thier  respective  schools. 

"The  course  of  study  leading  to  graduation  from  the  regular  teachers 
course  of  the  Arizona  normal  schools  shall  be  uniform  in  the  amount 

of  work,  and  shall  be  prescribed  by  the  boards  of  education 

Every  such  training  school  shall  at  all  times  be  under  the  supervision, 
control  and  management  of  the  governing  board  ....  All  teachers 
employed  to  teach  in  such  training  schools  ....  shall  be  employed 

by  the  governing  board  and  the  trustees  of  the  school  district 

acting  jointly.  The  governing  board  and  the  trustees  ....  shall 
jointly  prescribe  from  time  to  time  such  rules  and  regulations  as 
they  may  deem  proper  governing  the  admission  and  attendance  at  such 
training  school."8 

Vermont  provides  as  follows: 

"The  State  Board  of  Education  shall  have  the  care  and  management 
of  the  state  normal  schools  and  shall  exercise  such  powers  as  are 

'Arizona  Civil  Code,  1913,  Chap.  IV,  Art.  4513  seq. 


90  Legislative  Control  of  State  Normal  Schools 

necessary  for  the  proper  conduct  of  such  schools  and  shall  make  such 
regulations  in  respect  to  such  institutions  as  the  interests  of  the  state 
demand.  Said  board  shall,  through  the  commissioner  of  education,  pre- 
pare courses  of  study  to  be  given  in  such  schools  and  may  revise  the 
same  when  necessary.  Said  board  shall  determine  the  conditions 
for  admission  to  and  graduation  from  such  schools,  shall  select  and 
employ  all  such  teachers  for  such  schools  and  may  dismiss  them  when 
the  interests  of  the  school  requires.  All  moneys  received  from 
tuitions  or  otherwise  in  connection  with  such  schools  shall  be  turned 
into  the  treasury  by  said  board  and  same  may  be  used  by  said  board 
in  the  care  and  management  of  such  schools.  Said  board  shall,  in 
its  report  to  the  general  assembly,  state  the  condition  and  progress  of 
such  schools  and  the  moneys  received  and  expended  for  the  same."* 

A  study  of  the  provisions  made  by  each  state  shows  these  to 
be  common  expressions:  have  full  control  and  management  of 

normal  schools may   employ   secretary  ....  maintain 

practice  school determine  salaries receive  and 

distribute  funds  ....  make  biennial  report  ....  secure 
sites  ....  provide  buildings  ....  course  of  study  .... 
elect  principal  and  teachers  ....  fix  admission  and  graduation 
requirements  ....  visit  and  inspect  the  school,  etc.  As  will 
be  seen  in  Table  9  all  such  provisions  have  been  listed  and 
grouped  under  four  headings  in  an  attempt  to  find 
out  the  legal  duties  of  these  boards.  The  groupings  have 
been  made  more  or  less  arbitrarily,  yet  they  will  show 
clearly  that  the  principles  now  recognized  as  governing  the 
duties  of  a  board  are  not  contemplated  in  these  legislative  pro- 
visions. From  Table  9  it  may  be  found  that,  according  to  oar 
classification,  3.4  per  cent  of  the  board's  duties  relate  to  legis- 
lative action,  56.7  per  cent  to  executive  work,  16.7  to  profes- 
sional work  and  23.2  to  clerical  work.  It  will  be  admitted  that 
some  of  the  duties  listed  as  executive  should  be  performed 
by  the  board.  It  will  be  necessary  for  the  board  to  elect 
a  president  and  fix  salaries;  instead  of  the  board  electing  the 
teachers  it  would  be  more  economical  to  confirm  the  selection 
made  by  the  president.  Those  duties  listed  as  professional 
evidently  belong  to  educational  experts;  those  listed  as  cler- 
ical should  not  consume  the  board's  time,  as  we  know  they  do, 
but  should  be  left  to  its  paid  office  force.  It  can  readily  be  seen 


''Vermont  Civil  Code,  1917,  Chap.  71,  Sec.  1399. 


Significance  of  Different  Type  of  Boards 


91 


TABLE  9 
DUTIES  OF  NORMAL  SCHOOL  BOARDS  AS  SHOWN  BY  LEGISLATIVE  PROVISIONS 


!    Legislative 


Clerical 


Connecticut 

Georgia-- 
Idaho 


Indiana- 
Iowa 

Kansas... 


Kentucky — 
Louisi 

Maine 

Maryland 

Massachusetts 

Michigan 

Minnesota. 


Mississippi 

Missouri 

Minnesota... 
Nebraska 


New  Hampshire 
New  Jersey 


New  Mexico 

New  York 

No.  Carolina. 

No.  Dakota. 

Ohio 

Oklahoma 

Oregon 

Pennsylvania 

South  Carolina. 

South  Dakota 

Tennessee 

Texas 


Vermont. |Z 

Virginia 


Washington 

West  Virginia. ! 

Wisconsin 


92  Legislative  Control  of  State  Normal  Schools 

that  the  first  group  of  duties  should  receive  much  more  attention 
by  the  board  and  the  others  considerably  less.  This  important 
principle  is  not  recognized  even  in  the  latest  enactments  relating 
to  the  state  educational  boards.  In  February,  1919,  one  of  the 
states  consolidated  some  of  its  boards  by  the  following  provi- 
sions: " board  shall  have  general  control  and  manage- 
ment of  (names  of  all  the  state  educational  institutions)  .... 
shall  exercise  such  authority  and  perform  such  duties  as  may 
have  been  delegated  heretofore  to  the  state  board  of  regents,  to 
the  state  board  of  education  as  now  constituted,  to  the  state 
school  book  commission,  and  to  the  state  vocational  board."8 
By  way  of  explanation  it  should  be  said  that  in  this  particular 
state  the  state  board  of  education  has  performed  numerous  de- 
tailed duties  relating  to  the  certification  of  teachers;  it  is  un- 
necessary to  state  that  a  state  text-book  commission  has  details 
to  perform.  Now,  if  these  numerous  duties  fall  to  the  state 
board  of  education  in  addition  to  others,  and  the  board  consid- 
ers it  its  duty  to  perform  them  rather  than  to  employ  experts,  it 
is  not  surprising  that  it  finds  little  time  for  large  constructive 
educational  policies. 

TYPES  OF  BOARDS 

Local  vs.  State  Boards.  The  history  of  the  different  prevailing 
types  of  boards  follows  in  the  main  the  general  develop- 
ment of  educational  administration.  At  first  the  control  was 
well  centralized,  as  in  West  Virginia  and  Missouri;  later  it 
became  extremely  local,  and  now  it  is  slowly  swinging 
back  towards  a  highly  centralized  type.  The  local  boards 
now  in  existence  vary  from  those  whose  duties  are  merely 
nominal  to  those  with  complete  control  of  all  educational  and 
financial  matters.  The  main  advantage  claimed  for  the  local 
type  of  control  is  that  its  members,  by  assuming  the  responsibil- 
ity for  the  institution,  become  more  interested  in  its  prog- 
ress and  transmit  this  interest  to  their  fellow-citizens;  thus  the 
entire  community  becomes  a  unit  in  the  support  of  the  local  in- 
stitution. The  second  advantage  urged  is  that  the  board  from 
its  community  point  of  view  may  sense  needs  which  the  presi- 

'Code  of  West  Virginia,  Chap.  45,  See.  7. 


Significance  of  Different  Types  of  Boards  93 

dent  or  a  state  board  cannot  know.  Against  the  latter  conten- 
tion it  may  be  said  that  the  community's  view  is  narrow  and 
usually  this  narrow  view  handicaps  rather  than  promotes  real 
efficiency.  When  the  state  normal  schools  of  West  Virginia 
were  under  the  control  of  local  boards  the  entire  faculty  of  one 
school  was  dismissed  because  of  local  pressure.  This  was 
proved  when  the  state  board  which  then  had  the  power  to  re- 
view the  action  of  the  local  board  simply  transferred  the  facult;; 
to  another  institution  and  sent  that  institution's  faculty  to  tht 
former  one.  Even  if  the  advantage  of  greater  interest  does  not 
radiate  from  the  president  and  his  faculty,  it  can  be  secured 
through  a  local  committee  made  up  of  representative  citizens — 
men  and  women — who  are  merely  advisory  to  a  state  board. 

The  chief  disadvantage  of  a  local  board  for  the  control  of  any 
teacher  training  agency  is  that  the  board,  in  composition,  lacks 
vision;  hence,  all  questions  are  almost  certain  to  be  considered 
from  the  sectional  point  of  view.  It  is  possible,  too,  that  the  pur- 
pose of  the  school,  as  has  often  happened,  will  be  subordinated 
to  mere  enrollment,  which,  in  turn  will  secure  a  larger  appro- 
priation from  the  state  and  larger  financial  benefit  to  the  local 
community;  thus  a  large  material  plant  is  built  up,  perhaps  at 
the  expense  of  some  other  institution  the  function  of  which  is 
identical  and  the  needs  of  which  are  greater.  Second,  the  local 
board  may  coincide  with  the  president  and  work  in  harmony 
with  his  plans  or  may  work  contrary  to  his  policies  whether  they 
be  right  or  wrong;  at  any  rate,  such  a  board  cannot  inspire  the 
president  to  do  his  best  constructive  work  for  the  school.  Third, 
rivalry,  with  all  its  attendant  evils  too  well  known  to  consume 
time  here,  is  sure  to  be  present  where  the  local  type  of  control 
prevails. 

The  advantages  of  a  state  board  of  education  inhere  in  the 
fact  that  the  members  may  be  drawn  from  the  different  parts  of 
the  state  and  thereby  bring  a  wider  experience  than  is  likely  to 
be  found  in  any  local  board.  Second,  in  approving  courses  of 
study,  appointing  presidents  and  faculties,  and  determining  their 
tenure,  local  bias  will  be  eliminated ;  this  fact  alone  means  much 
to  the  efficiency  of  any  educational  institution.  Third,  a  state 
board  of  education  will  cooperate  more  readily  with  other  state 


94  Legislative  Control  of  State  Normal  Schools 

boards  in  working  out  state-wide  programs.  This  cooperation  is 
especially  necessary  in  the  training  of  teachers.  These  advan- 
tages, together  with  the  inherent  disadvantages  of  a  local  board, 
indicate  rather  clearly  that  some  form  of  state  board  is  best  for 
normal  schools. 

Multiple  vs.  Unit  Boards.  A  summary  of  the  data  found  in 
Chapter  I,  Section  C,  reveals  the  fact  that  out  of  forty-four 
states  only  nine  have  unit  boards  for  the  management  and 
control  of  all  state  institutions ;  twelve  have  unit  boards  for  all 
state  teacher  training  institutions,  while  thirty-two  have  such 
boards  for  state  normal  schools.  Since  the  training  of  teachers 
for  a  state  is  a  "  homogeneous  undertaking, '  '9  or  at  least  should 
be,  it  seems  reasonable  that  one  board  should  control  and  unify 
this  state-wide  function.  Where  multiple  boards  exist  for  the 
control  of  different  institutions  with  like  functions  the  same 
disadvantages  inhere  as  in  the  local  boards,  except  in  a  some- 
what less  acute  form.  Each  desires  to  obtain  an  appropriation 
which  will  make  a  creditable  showing  for  its  particular  institu- 
tion, and  expenditures  are  often  made  regardless  of  the  function 
of  the  institution  in  the  system  as  a  whole.  The  rivalry  among 
multiple  boards  controlling  institutions,  the  functions  of  which 
are  alike,  may  be  equal  to  the  rivalry  among  local  boards.  It 
reminds  one  of  children  who  want  the  same  toy  at  the  same 
time,  or  the  same  slice  of  cake  when  there  are  others  just  as 
large  and  as  good.  Departments  of  education  within  universi- 
ties have  prospered  in  training  secondary  teachers;  normal 
schools  oftentimes  have  tried  to  build  up  their  attendance  by 
imitating  the  departments,  regardless  of  their  immediate  op- 
portunity to  serve  the  state  well  in  the  training  of  elementary 
teachers.  As  a  result  there  has  been  an  uneconomical  expendi- 
ture of  money  and  time. 

It  is  not  urged  here  that  the  field  of  the  normal  school  be 
limited  or  that  a  monopoly  be  given  to  the  university  in 
the  training  of  secondary  teachers,  but  rather  that  there 
should  be  a  central  authority  to  assist  in  defining  and 


•Bulletin   No.  14,    The  Carnegie   Foundation   for   the   Advancement   of 
Teaching,  p.  63. 


Significance  of  Different  Types  of  Boards  95 

adjusting  the  aims  of  the  different  teacher  training  in- 
stitutions. In  addition  to  the  aims  and  programs  there  are 
certain  details,  such  as  determining  entrance  requirements,  grad- 
uation requirements,  exchange  of  credits,  credit  for  extension 
work,  latitude  to  the  mature  student,  and  variation  in  the  cur- 
riculum to  suit  local  needs,  which  only  a  unit  board  can  manage 
intelligently.  Out  of  these  considerations  it  seems  reasonable  to 
contend  that  all  state  teacher  training  agencies  should  be  placed 
under  one  board.  This  obviously  leads  to  the  conclusion  that 
all  state  institutions,  particularly  those  which  have  anything  at 
all  to  do  with  education,  should  be  placed  under  this  same  unit 
board.  It  is  beyond  the  limits  of  this  monograph  to  present  data 
or  further  argument  to  substantiate  this  position.  Concerning 
the  teacher  training  high  schools  let  it  suffice  to  say  that  the  state 
should,  as  it  is  doing  in  many  places,  exercise  strong  supervi- 
sory control  as  long  as  the  present  teacher  shortage  makes  the 
existence  of  such  training  necessary.  Coffman  says:  "The 
system  was  established  in  the  first  place  because  the  central  ed- 
ucational machinery  and  the  state  normal  schools  were  not  meet- 
ing rural  needs,  and  it  has  grown  because  it  does  supply  an 
immediate  need  in  an  immediate  way.  At  the  time  when  it  be- 
came an  institution  the  people  of  the  state  were  not  used  to 
acting  in  unison  on  such  questions;  without  doubt,  were  the 
problem  to  be  solved  anew  with  the  educational  machinery  now 
organized  in  the  state,  another  solution  more  efficient  and  more 
economical  would  be  found."10 

Other  Types  of  Multiple  Boards.  Further  Disadvantages. 
Multiple  boards  may  be  further  classified  as  local-multiple 
boards  such  as  now  exist  in  Arizona,  California,  Georgia,  Mis- 
souri, New  Mexico ;  or  as  state  dual  boards  such  as  are  found  in 
West  Virginia  and  other  states  having  two  boards  with  different 
functions  in  control  of  the  same  institution.  The  latter  type 
will  be  discussed  here,  since  it  involves  a  form  of  multiple  con- 
trol now  receiving  attention  and  likely  to  become  prevalent 
because  of  its  possibilities  for  scientific  management. 

In  West  Virginia  this  dual-multiple  control  is  felt  within  the 


"Coffman,  L.  D.,  Teacher  Training  Departments,  Minnesota  High  Schools, 
p.  79. 


96  Legislative  Control  of  State  Normal  Schools 

state  educational  institutions.  According  to  the  new  code  of 
1919  the  State  Board  of  Education  consists  "of  seven  members, 
one  of  whom  shall  be  the  state  superintendent  of  schools  ex- 
officio,  and  the  other  six  members  shall  be  appointed  by  the 
governor,  as  herein  provided  from  the  two  dominant  political 
parties  ....  shall  have  the  general  control  and  management 
of  the  educational  affairs  of  the  West  Virginia  University,  the 
state  normal  schools,  the  West  Virginia  Trades  School,  the  West 
Virginia  Vocational  School  ....  and  of  any  other  state  edu- 
cational institution  which  may  hereafter  be  created  by  law."11 
"The  state  board  of  control  ....  shall  consist  of  three  mem- 
bers, not  more  than  two  of  whom  at  the  time  of  appointment 
shall  belong  to  the  same  political  party,  to  be  appointed  by  the 
governor  and  with  the  advice  of  the  state  senate  .  .  .  shall  have 
charge  and  control  of  the  financial  and  business  affairs  of  the 
West  Virginia  University  ....  the  state  normal  school  and  its 
branches  ....  and  have  such  other  control  and  management 
of  said  institutions  as  are  in  this  act  provided. ' 512 

These  statutory  provisions  create  a  peculiar  relationship  be- 
tween the  two  boards  in  the  management  and  control  of  the  same 
institutions.  The  State  Board  of  Education  may  employ  presi- 
dents or  teachers  in  any  institution,  but  the  salaries  cannot  be 
paid  unless  approved  by  the  State  Board  of  Control.  The  for- 
mer may  employ  a  teacher  of  agriculture  or  home  economics, 
but  the  latter  may  say  that  there  are  no  funds  for  equipping 
the  laboratories.  Expensive  apparatus,  including  scientific 
books,  and  even  magazines  may  be  needed  for  a  certain  institu- 
tion, but  funds  may  be  lacking  according  to  the  interpretation  of 
the  needs  of  the  institution  by  the  State  Board  of  Control.  In 
other  words,  efficiency  and  economy,  in  the  eyes  of  one  board, 
may  mean  a  little  greater  expenditure  of  funds,  while  in  the 
eyes  of  the  other  it  must  always  mean  less  expenditure  of  the 
available  funds.  According  to  this  dual  type  of  control  it  is 
possible  for  these  two  extreme  ideas  to  be  found  in  each  board. 

Legally,  then,  the  State  Board  of  Education  becomes  little  more 
than  a  sub-committee  of  the  State  Board  of  Control.  In  actual 
practice,  however,  it  must  be  said  that  they  have  worked  har- 

"West  Virginia  Code,  Chap.  45,  Sec.  4.    "Ibid.,  Chap.  15,  Sec.  1. 


Significance  of  Different  Types  of  Boards  97 

moniously  in  the  state  since  their  creation  in  1909.  The  Board 
of  Control  in  its  biennial  report  of  1912  says,  "We  are  glad  to 
state  that  this  Board  [the  Board  of  Regents,  now  Board  of  Edu- 
cation] has  given  us  generous  cooperation  in  our  work  for  the 
educational  institutions,  and  the  relations  at  all  times  between 
the  two  Boards  have  been  harmonious  and  helpful."13  It  is 
generally  acknowledged  that  harmony  has  been  brought  about, 
not  by  any  virtue  inherent  in  the  type  of  control,  but  because 
the  members  of  both  boards  have  been  broad,  liberal-minded 
men,  and,  as  has  been  said  of  the  system,  it  has  worked  because 
those  identified  with  it  have  determined  to  make  it  work.  This 
dual-multiple  type  control  is  a  most  unfortunate  one,  the  evils  of 
which  future  legislation  cannot  afford  to  overlook.  It  may  be 
that  these  two  boards  will  work  in  harmony  in  this  state  for 
years,  but  the  future  development  of  state  institutions  is  a  mat- 
ter of  too  great  importance  to  leave  such  to  chance.  This  dan- 
ger must  be  present  wherever  there  are  two  parallel  boards 
whose  powers  and  duties  overlap,  or  more  especially  where  one 
has  control  of  the  financial  affairs  and  the  other  of  the  educa- 
tional. Wherever  anything  savoring  of  so-called  scientific 
management  is  introduced  it  should  be  safeguarded  so  that  the 
financial  interests  do  not  obscure  the  educational.  The  solution  is 
self-evident ;  namely,  there  should  be  one  board  with  the  general 
oversight  of  the  powers  and  duties  now  lodged  in  the  two 
boards.  The  details  should  then  be  placed  in  the  hands  of  ex- 
perts, and  there  should  be  one  state  board  for  all  educational  in- 
stitutions. The  principle  advocated  here  is  referred  to  in  the 
report  of  the  survey  of  the  Binghamton  school  system  which 
says :  ' '  The  board  of  education  has  no  control  over  budget  esti- 
mates or  disbursement  of  funds.  The  lack  of  financial  control 
has  often  meant  also  lack  of  power  to  fix  educational  policies."14 
The  disadvantages  naturally  inherent  in  the  various  types  of 
multiple  boards  and  in  local  boards  can  be  overcome  only  by  a 
unit  board  for  at  least  all  institutions  which  have  to  do  with  the 
unified  problem  of  training  teachers.  This  unit  board  should 
have  the  full  management  and  control  of  the  normal  schools,  the 


"Biennial  Report,  1912,  West  Virginia  State  Board  of  Control. 
UA  Report  of  the  Survey  of  the  Binghamton  School  System,  p.  36. 


98  Legislative  Control  of  State  Normal  Schools 

schools  of  education  in  state  colleges  and  universities,  and  in- 
cidentally we  suggest  the  supervision  of  all  such  work  in  the 
private  and  denominational  colleges,  the  city  training  schools, 
and  the  high  schools.  The  chief  reasons  for  the  unit  board  may 
be  summarized  by  saying  that  the  problem  of  training  teachers 
for  the  state  is  a  unit  problem ;  the  present  division  of  the  prob- 
lem among  different  institutions  differently  controlled  is  his- 
toric and  not  at  all  inherent  in  the  nature  of  teacher  training 
itself.  This  essential  integration  can  be  maintained  only  by  a 
single  board  whose  vision  is  state-wide  and  whose  purpose  in 
this  respect  is  single,  namely,  to  supply  the  state  with  an  ade- 
quate supply  of  trained  teachers. 

The  disadvantages  of  such  a  type  of  control  should  be  clear : 

First,  the  specific  work  of  each  institution  would  be  outlined 
with  reference  to  the  one  great  problem.  Each  school  would  then 
feel  that  its  assigned  work  was  important,  that  it  was  rendering 
a  great  service  to  the  state  and  that  undesirable  competition 
with  other  similar  schools  was  unnecessary  nor  necessary  to  main- 
tain courses  in  fields  where  there  was  not  sufficient  demand  for 
the  returns  to  justify  the  expenditure.  The  board  would  as- 
sume responsibility  for  the  results  of  each  school  in  comparison 
with  the  other  schools. 

Second,  entrance  credits,  graduation  requirements,  flexibility 
for  mature  students,  extension  credit  and  courses,  can  be  adopt- 
ed by  the  board  through  its  experts. 

Third,  local  interests  in  all  phases  would  become  subordinated 
to  the  real  purpose  of  the  school.  Local  pride  would  find  expres- 
sion in  a  desire  to  furnish  the  greatest  possible  number  of  trained 
teachers  to  the  state  rather  than  to  attract  many  students  to 
the  local  town  in  order  that  local  merchants,  boarding-house 
keepers,  and  owners  of  rooms  may  increase  their  incomes. 

Fourth,  the  unit  board  would  give  an  opportunity  to  employ 
expert  service  in  all  phases  of  its  work.  It  can  employ  an  expert 
business  manager  and  equip  his  office.  It  can  employ  the  chief 
executive  of  the  institution  and  give  him  sufficient  office  help, 
so  that  he  may  contribute  his  services  to  the  instructional 
side  of  the  school.  Under  the  multiple  or  more  especially  the 


Significance  of  Different  Types  of  Boards  99 

dual  type  of  control  for  the  same  institution  the  chief  execu- 
tive is  between  two  fires. 

Fifth,  the  unit  board  would  assume  the  responsibility  of  all  ap- 
propriations and  distribute  the  same  among  the  various  institu- 
tions under  its  control  according  to  their  several  purposes  and 
needs.  Just  here  a  plausible  argument  can  be  found  for  extend- 
ing this  type  of  control  to  all  state  institutions.  Log-rolling  in 
legislatures,  which  leads  to  all  forms  of  bad  ethics  and  uneco- 
nomical effort,  would  be  stopped. 

Sixth,  the  plan  would  give  an  opportunity  for  the  classifica- 
tion and  explanation  of  receipts  and  expenditures.  In  the  Ap- 
pendix of  this  study  will  be  found  some  of  the  advantages  of 
such  a  classification. 

Seventh,  the  presence  of  ex-officio  members  on  many  boards 
indicates  that  there  is  a  recognized  need  for  unity  of  control. 
This  need  is  further  exemplified  in  the  Joint  Board  of  Higher 
Curricula  of  the  state  of  Washington,  in  the  Council  of  Educa- 
tion of  Alabama,  and  in  other  similar  boards.  The  functions  of 
the  former  ' '  are  threefold :  1.  To  consider  matters  of  efficiency 
and  economy  in  the  administration  of  the  five  institutions  of 
higher  learning  supported  by  the  state,  and  to  make  recom- 
mendations to  their  controlling  boards.  2.  To  approve  or  dis- 
approve of  the  introduction  of  new  major  professional  or  ap- 
plied science  lines  in  the  various  institutions.  3.  To  survey 
the  several  institutions,  investigating  the  enrollment,  attend- 
ance and  cost  of  instruction,  and  to  report  biennially  to  the  gov- 
ernor. ' '" 

The  Alabama  Council  of  Education  was  created  at  the  sug- 
gestion of  the  survey  commission  which  said  it  "should  be  or- 
ganized as  a  clearing-house  board  to  have  charge  of  and  settle 
all  educational  matters  of  common  interests  to  the  schools  di- 
rected by  the  State  Board  of  Education,  and  to  the  schools  un- 
der the  three  boards  of  the  higher  educational  institutions."1" 
This  board  is  composed  of  the  governor,  the  state  superintendent 
of  schools,  two  members  of  the  state  board  of  education,  the 


vFvrst  Biennial  Eeport  of  the  Joint  Board  of  Higher  Curricula,  p.  6. 
"An  Educational  Study  of  Alabama,  U.  S.  Bureau  of  Education,  Bull. 
No.  41,  p.  63. 


100  Legislative  Control  of  State  Normal  Schools 

presidents  of  each  of  the  three  institutions,  and  a  member  of 
each  of  the  three  boards  of  trustee.  In  it  the  desire  for  cen- 
tralized control  can  readily  be  seen. 

Eighth,  practically  all  recent  legislation  favors  some  form  of 
more  centralized  control  than  was  found  in  the  legislation  it 
displaced.  The  Alabama  State  Board  of  Education,  created  in 
1919,  displaced  five  boards  of  trustees,  a  state  board  for  voca- 
tional education,  the  state  high  school  commission,  state  text 
book  commission,  and  the  illiteracy  commission.18  New  Mex- 
ico's new  law,  effective  1921,  created  a  board  to  "manage  and 
control  all  state  educational,  charitable,  penal  or  reformatory 
institutions."17  It  likewise  displaces  four  boards  of  regents  and 
a  state  board  of  education. 

Wisconsin,  recognizing  the  principle  of  unity  in  its  educa- 
tional system,  has  established  a  state  board  of  education  whose 
duties  are  "to  present  to  the  legislature  budget  estimates  which 
will  represent  a  state  view  of  the  educational  problem  and  not 
merely  a  local  view To  secure  the  best  available  infor- 
mation to  serve  as  a  basis  for  an  educational  policy  which  will 
offer  the  widest  possible  educational  opportunity  to  the  people 
of  the  state  for  the  funds  expended To  make  unneces- 
sary and  to  prevent  an  unseemly  scramble  for  legislative  funds, 
and  lobbying  in  the  interest  of  special  legislation  for  particular 
schools  or  parts  of  the  educational  system To  keep  edu- 
cational institutions  from  unduly  expanding  their  functions, 
prevent  duplication  of  work  adequately  provided  for  in  other  in- 
stitutions, and  promote  harmony  in  the  educational  system  and 
single-minded  devotion  to  the  entire  educational  interests  of  the 
state."18  To  this  end  several  propositions  defining  the  duties 
of  the  several  state  officers,  commissions  and  boards  for  the 
cooperation  and  execution  of  the  state's  work  have  been  adopted. 

Ninth,  many  authoritative  opinions  favorable  to  the  unit  board 
may  be  cited.  The  most  significant  is  found  in  The  Pro- 
fessional Preparation  of  Teachers  for  American  Public  Schools : 
"Whatever  steps  may  be  taken  in  Missouri  or  elsewhere  in  the 
name  of  progress  in  educational  organization,  it  is  safe  to  say 


"New  Mexico  Statutes,  1919. 

^Wisconsin's  Educational  Horizon,  Vol.  I,  pp.  4-5. 


Significance  of  Different  Types  of  Boards  101 

that  they  will  represent  in  some  form  the  present  inevitable 
tendency  toward  simplification,  by  centralizing  power  and  re- 
sponsibility in  the  hands  of  a  few  individuals — and  those  fitted 
to  use  it."19  The  survey  further  states:  ''The  foregoing  sec- 
tion was  devoted  to  a  plan  whereby  these  schools  (normal  schools) 
should  be  given  their  natural  place  in  the  university  organiza- 
tion, with  their  executives  in  charge  of  the  whole  problem  of  the 
preparation  and  supply  of  teachers  for  the  state.  Informed 
opinion  will  likewise  agree  that  it  is  a  serious  weakness  to  have 
a  state  superintendent  elected  by  the  people  as  a  partisan,  and 
that  he  should  be  replaced  by  a  skilled  officer,  chosen  solely  for 
his  ability,  on  a  tenure  of  good  behavior,  and  responsible  to  a 
group  of  intelligent  laymen.  The  absolute  need  for  concerted 
action  between  these  two  authorities — the  one  responsible  for 
training  in  state  institutions,  the  other  for  administration  at 
large — suggests  at  once  the  advisabililty  of  placing  both  func- 
tions under  one  board  of  representative  citizens."20 

Tenth,  a  unit  board  would  be  more  economical.  At  present  this 
must  remain  in  an  assertive  form  because  of  lack  of  comparative 
data  of  the  multiple  and  the  unit  types.  An  ex-governor 
recently  said:  "Our  present  system  of  controlling  state 
institutions,  even  though  we  still  have  a  dual  type  and 
pay  each  of  the  three  members  of  the  state  board  of  control 
$5,000  per  year,  each  of  four  members  of  the  state  board  of  edu- 
cation $1,000  per  year,  is  undoubtedly  less  expensive  than 
our  old  multiple  type  of  control."  If  this  is  in  any  measure 
true  where  the  boards  are  highly  salaried  officials,  it  should  cer- 
tainly be  true  where  such  boards  serve,  according  to  a  well 
established  American  principle  in  education,  for  expenses  or 
for  a  small  per  diem  and  expenses. 

DETAILED  PROVISIONS  FOR  A  UNIT  BOARD 

The  question,  What  is  the  best  type  of  board  a  state 
can  provide  by  legislative  enactment  for  the  control  of  its 
teacher  training  agencies,  having  been  answered  in  favor  of  a 


""Bulletin   No.   14,   The  Carnegie  Foundation  for   the  Advancement  of 
Teaching,  p.  274. 
"Ibid.,  p.  65. 


LIBRARY 

TEACHERS  COLLEOK 
MAHBARA.   CALIFORNIA 


102  Legislative  Control  of  State  Normal  Schools 

state-unit  board  we  shall  now  proceed  with  the  detail  of  such  a 
board.  This  topic  calls  for  an  examination  of  the  methods  of 
choosing  members,  the  length  of  the  term  for  which  each  mem- 
ber is  chosen,  qualifications  for  membership,  the  number  of 
members  on  the  board,  ex-officio  membership,  and  the  compen- 
sation. 

Methods  of  Choosing  Board  Members.  Eeference  to  the  data 
will  show  that  of  the  seventy-seven  different  boards  repre- 
sented in  the  study  governing  state  normal  schools  fifty-eight, 
or  seventy-five  per  cent,  are  appointed  by  the  governors  of 
the  different  states.  Over  twenty-three  per  cent  are  ap- 
pointed by  the  legislatures,  the  state  board  of  education 
or  some  other  authority,  while  about  two  per  cent  are 
elected  by  the  people.  The  question  concerns  itself  with  how 
to  secure  the  most  efficient  persons  for  this  particular  position. 
If  we  should  attempt  to  draw  our  standard  from  city  school 
administration  we  would  find  opinion  divided,  leaning  somewhat 
toward  the  election  plan.  Strayer  and  Engelhardt  say: 

"The  principles  which  govern  in  the  case  of  the  county  board  of  edu- 
cation, or  of  the  city  school  board  are  identical.  ....  A  board  of 
education  elected  at  large,  consisting  of  from  five  to  nine  members, 
whose  terms  of  office  equal  in  length  the  number  of  members  of  the 
board,  serving  without  pay,  has  been  found  most  acceptable  in  most 
American  cities."" 

Cubberley  says: 

"A  plan  tried  in  some  of  our  cities,  but  one  less  in  favor  now  than 
some  years  ago,  is  that  of  having  the  mayor  of  the  city  appoint  the 
board  members  instead  of  their  being  elected.  This  plan  is  especially 
favored  in  large  cities.  In  small  cities  there  is  no  question  but  that 
election  at  large  by  popular  vote  is  the  more  desirable  method,  and 
even  for  large  cities  experience  seems  to  indicate  that  the  results  are 
about  equally  satisfactory."22 

In  a  footnote  following  the  above  quotation  we  find: 

"Election  by  the  people  and  at  large  has  certainly  given  better  re- 
sults in  Boston,  St.  Louis,  and  Portland,  Oregon,  than  has  been  the 
case  under  appointment  by  the  mayor  in  New  York,  Chicago  or  San 
Francisco."23 


"Strayer  and  Engelhardt,  The  Class  Boom  Teacher,  p.  37. 
^Cubberley,  E.  P.,  Public  School  Administration,  p.  96. 
"Ibid.,  p.  461. 
"Ibid. 


Significance  of  Different  Types  of  Boards  103 

However,  the  same  author  in  speaking  of  the  application  of  city 
school. administration  to  state  educational  organization  says  that 
for  general  control,  "There  should  be  a  state  board  for  educa- 
tional control,  consisting  of  a  small  number  of  representative  citi- 
zens of  the  state,  to  be  appointed  by  the  governor  and  for  rela- 
tively long  terms.  A  board  of  five  or  seven  members,  with  the 
term  of  one  expiring  each  year,  represents  in  many  respects  a 
desirable  form  of  organization."24  The  Alabama  survey  com- 
mission says:  "The  consensus  of  opinion  both  within  the  state 
and  throughout  the  country  is  strongly  in  favor  of  the  governor 
appointed  board."25 

The  objections  to  electing  a  state  board  of  education  are  prac- 
tically the  same  as  those  frequently  urged  against  electing  the 
state  superintendent  in  that  way,  namely,  that  the  true 
issues  involved  in  the  election  are  so  clouded  by  the  so-called 
larger  political  questions  that  the  slate,  following  the  name  of 
governor,  goes  through  regardless  of  the  qualifications  of  its  can- 
didates. In  other  words,  educational  ideals  and  policies  are  en- 
tirely obscured  in  the  political  muddle.  This  disadvantage 
might  be  overcome  by  having  a  separate  election.  It  is  ques- 
tionable whether  the  extra  expense  would  be  justified  by  the  re- 
sults obtained.  Perhaps  the  appointive  power  of  the  governor 
can  be  so  regulated  that  equally  good  results  will  be  secured.  In 
reply  to  the  argument  that  extreme  centralization  of  power  takes 
away  the  just  rights  of  the  people,  it  may  be  said  that  the  real 
citizens  in  a  true  democracy  are  more  concerned  with  having 
equal  educational  advantages  and  opportunities  for  their  chil- 
dren than  expressing  their  opinion  on  matters  upon  which  they 
are  uniformed,  and,  upon  which,  during  times  of  great  political 
agitation,  it  is  impossible  to  secure  information.  For  these 
reasons  it  may  be  well  to  adhere  to  the  standard  now  set  by  the 
seventy-five  per  cent  in  the  matter  of  securing  efficient  boards  for 
the  management  and  control  of  our  state  teacher  training  schools. 

Length  of  Term.  A  summary  of  the  results  in  Table  4 
shows  that  the  length  of  term  for  normal  school  board 
members  varies  from  two  years  to  twelve,  with  an  average  of 


* An  Educational  Study  of  Alabama,  U.  8.  Bureau  of  Education  Bull.  No. 
41,  1919,  p.  432. 


104  Legislative  Control  of  State  Normal  Schools 

5.3  years,  the  exception  to  this  being  Arizona  and  New 
York  where  members  may  be  appointed  for  life  or  during  sat- 
isfactory service.  It  is  difficult  to  set  as  a  standard  an  exact  num- 
ber of  years  for  membership  on  a  teacher  training  board.  It 
would  be  difficult  to  prove  that  membership  should  be  for  twelve 
years  rather  than  nine.  However,  in  choosing  between  nine 
years  and  four  there  should  be  no  difficulty.  It  is  agreed  by  all 
authorities  that  the  length  of  term  should  be  relatively  long,  at 
least  longer  than  that  of  the  appointive  power.  The  following 
reasons  for  this  seem  valid:  If  the  appointive  power,  the  gov- 
ernor, say,  should  be  tempted  to  appoint  at  the  beginning  of 
his  term  a  political  follower  for  political  purposes,  and  the 
length  of  the  term  of  the  member  appointed  be  longer  than  that 
of  the  governor,  such  appointment  might  act  as  a  boomerang  and 
defeat  the  ulterior  purpose  of  the  governor.  In  this  connection  it 
should  be  said  that  the  terms  should  be  so  arranged  that  no 
one  governor  shall  appoint  many  new  members.  Further,  wor- 
thy state-wide  teacher  training  programs  demand  a  series  of 
years  for  accomplishment.  If  the  board  is  changing  rapidly 
within  the  time  required  it  is  certain  that  the  original  program 
will  never  be  carried  through.  It  is  true  that  institutions  and 
institutional  life  should  be  modified  with  the  changes  in  society, 
yet  there  must  be  maintained  a  thread  of  stability  if  society  is 
to  perpetuate  itself;  only  board  members  who  serve  many 
years  can  maintain  the  stability  of  institutional  life.  Many  citi- 
zens standing  on  the  outside  of  an  institution  think  that  it 
should  be  rapidly  reformed.  They  may  be  right,  but  a  sane  de- 
cision demands  careful  and  continuous  study  in  close  contact, 
and  this  requires  a  greater  length  of  time  than  two  or  three  or 
probably  four  years. 

Qualifications  for  Membership.  As  will  be  seen  from  the 
data  there  is  no  uniform  procedure  among  the  states  on  the 
specifications  of  qualifications.  In  some  of  the  provisions  none 
are  specified.  In  some  there  is  a  geographical  distribution, 
such  as  a  limited  number  from  the  same  county  or  one  from  each 
congressional  district.  A  few  prohibit  membership  by  the 
appointees  of  the  board,  thus  excluding  all  connected  with 


Significance  of  Different  Types  of  Boards  105 

the  state  institutions  for  which  the  board  exists;  others 
limit  membership  to  schoolmen.  A  number  mention  polit- 
ical party  affiliation.  The  fallacy  inherent  in  some  of 
the  specifications  is  evident.  The  mention  of  the  congres- 
sional district,  or  any  other  geographical  distribution,  is 
probably  of  political  origin.  To  tell  an  intelligent  governor 
who  has  the  appointive  power,  or  citizens  who  cast  the  bal- 
lot, that  the  eligible  candidate  for  board  membership 
must  have  "character  and  fitness,"  is  a  waste  of  printer's 
ink.  An  ex-governor,  whom  the  writer  consulted,  who  has  made 
a  study  of  boards  of  control  for  educational  institutions,  said 
that  it  might  be  of  some  assistance  and  a  protection  to  the 
governor  in  making  the  appointments  if  the  law  specified 
at  least  a  bi-partisan  board.  If  the  details  are  handled  by  a 
sufficient  number  of  experts,  as  will  be  recommended  later  in 
this  study,  it  might  be  well,  in  order  to  prevent  an  inbreeding 
of  ideas,  to  exclude  the  educational  appointees  of  the  board, 
since  their  recommendations  will  at  all  times  be  before  the  board 
in  its  deliberations. 

Number  of  Members.  In  this  investigation  it  has  been 
found  that  normal  school  boards  range  in  number  from 
two  to  twelve,  excluding  the  ex-officio  members;  the  median  is 
six.  The  number  who  hold  ex-officio  relationship  to  such  boards 
ranges  from  one  to  three ;  since  twenty-five  of  these  boards  have 
one  ex-officio  member,  it  may  be  said  that  the  typical  normal 
school  has  a  membership  of  seven.  Of  the  many  studies  now 
available  concerning  the  work  of  committees  and  their  relation- 
ship to  their  boards,  most  of  them  lead  to  the  conclusion  that 
committee  service  is  time  consuming  in  its  usual  form  and  that 
it  is  overworked  as  an  educational  policy.  This  point  is  made 
clear  by  Cubberley  in  Public  School  Administration  (page  112). 

Theisen,  in  his  recent  study,  finds  a  positive  correlation  of  plus 
.56  between  the  number  of  committees  and  the  size  of  the  board 
for  city  schools.  All  who  have  had  to  do  with  boards  of  any 
kind  know  that  a  small  board  of  from  three  to  five  members  is 
far  more  effective  in  handling  any  kind  of  business  than  a  board 
composed  of  larger  membership. 


106  Legislative  Control  of  State  Normal  Schools 

Ex-Officio  Membership.  As  a  principle  of  city  school 
administration  ex-offido  membership  would  not  be  tolerated. 
It  may  be  surprising  to  find  that  forty-three  normal  school 
boards  have  from  one  to  three  representatives  who  are  there  be- 
cause of  other  relationship  to  the  school  or  the  political  system. 
By  reference  to  the  graphs,  Section  II,  Chapter  I,  of  this  study, 
it  will  be  seen  that  the  most  frequent  ex-officio  member  is  the 
state  superintendent ;  the  next  is  the  governor.  It  is  difficult  to 
understand  why  the  governor  should  retain  a  place  on  such 
board  except  as  a  matter  of  custom.  In  a  decentralized  system 
of  control  for  all  state  educational  institutions  it  can  readily  be 
seen  that  the  state  superintendent  has  been  considered  the  logi- 
cal connecting  link.  His  exclusive  control  over  the  public  school 
system  and  the  intimate  relationship  which  the  normal  school 
bears  to  it  again  make  it  seem  reasonable  that  the  superintendent 
should  occupy  a  place  on  the  board  of  control.  Exact  data  would 
be  difficult  to  obtain  concerning  the  effect  of  the  superintendent  as 
ex-officio  member  on  the  normal  school  board.  This  study 
does  not  offer  such  data.  However,  our  contention  is  that  the 
unit  plan  for  governing  state  teacher  training  institutions  will 
make  this  condition  unnecessary  in  states  where  the  superin- 
tendent can  be  appointed  by  the  unit  board.  In  others,  it  may 
be  wise  to  retain  the  superintendent  in  some  such  relationship, 
until  a  constitutional  amendment  gives  the  board  the  authority 
to  make  the  appointment. 

Compensation  of  Members.  Our  data  show  that  the  "un- 
paid board"  is  typical  in  nearly  all  states.  This  conforms 
to  the  opinions  of  the  best  educational  authority  on  the 
subject.  A  few  states  have  salaried  boards  for  the  control 
of  normal  schools  and  other  state  institutions,  but  the  experiment 
is  too  new  to  furnish  any  evidence  that  such  a  procedure  is  nec- 
essary in  American  education. 

After  providing  a  board  for  the  control  of  teacher  training 
agencies  of  this  type,  including  the  details  suggested  by  the 
preceding  discussion,  namely,  a  state-unit  board  composed  of 
from  three  to  five  members  appointed  by  the  governor,  or  elected 
at  a  separate  election,  with  terms  of  service  at  least  longer 


Significance  of  Different  Types  of  Boards  107 

than  that  of  the  governor,  and  serving  without  compensation, 
it  is  then  well  to  ask  the  question:  Is  efficient  control  of  the 
institution  insured  ?  An  affirmative  answer  can  be  given  only  in 
so  far  as  this  board  has  a  clear  conception  of  its  duties,  looks 
carefully  to  its  own  organization,  and  provides  the  administra- 
tive machinery  which  will  inspire  and  make  economical  use  of 
the  personnel  of  the  institution  or  institutions  which  it  controls. 
Anyone  at  all  familiar  with  the  work  of  a  board  of  control  and 
with  the  institution  or  institutions  knows  the  numerous  details 
necessarily  involved  in  the  successful  operation  of  both.  Since, 
according  to  the  principles  already  advocated  by  this  study, 
the  board  can  neither  as  a  whole  nor  through  committee 
action  afford  to  do  the  actual  details  involved  in  its  own 
office,  the  alternative  is  that  it  must  employ  experts  for 
the  details  in  order  that  it  may  use  its  own  time  judiciously. 
At  least  two  experts  will  be  needed — one  will  be  an  edu- 
cational expert — in  addition  to  the  state  superintendent,  the 
other  will  be  the  financial  or  business  expert  with  an  adequate 
office  force.  Others  may  be  needed,  and  still  others  may  be 
called  for  special  services,  such  as  educational  surveys,  special 
problems,  and  the  location  of  professional  schools.  Reasons  for 
the  employment  of  these  experts  will  be  indicated  later  in  the 
study. 

Relationship  of  tine  Board  to  the  School,  The  provisions 
made  by  the  board  for  the  organization  and  administration 
of  -the  school  deserve  careful  attention.  The  relationship 
between  the  board  and  the  institution  should  be  one  of  mutual 
understanding,  sympathy,  and  helpfulness.  When  there  are 
misunderstandings  and  cross  purposes  both  fail  to  function 
properly.  This  relationship  can  best  be  seen  by  grouping  the 
work  of  the  institution  under  two  groups  of  activities.  The  first 
group,  which  may  properly  be  called  major  activities,  concerns 
the  technical  process  of  classroom  instruction  and  the  personal 
relationship  of  faculty  and  student  body.  With  this  group  the 
board  seldom  concerns  itself.  The  second  group  of  activities, 
since  it  exists  primarily  for  the  first,  may  be  called  a  minor  one, 
yet  it  is  extremely  essential,  and  oftentimes  its  management 


108  Legislative  Control  of  State  Normal  Schools 

conditions  to  a  great  extent  the  efficiency  of  the  entire  institu- 
tion. It  might  be  termed  the  business  side  of  the  school,  and  is 
concerned  with  publishing  reports,  supervising  and  planning 
grounds,  ordering  supplies,  and  paying  bills.  These  functions 
must  be  discharged  by  someone,  and  unfortunately  they  often- 
times are  assumed  willingly  by  the  president  of  the  normal  school. 

The  Board's  Concept  of  the  President's  Duties.  When  the 
board  fails  to  furnish  sufficient  office  force,  the  president  be- 
comes a  mere  office  automaton,  ordering  supplies,  signing 
checks,  and  paying  bills.  This  is  especially  true  if  there  is  a 
financial  board  or  committee  which  does  not  see  the  real  aim  of 
the  institution  nor  recognize  the  function  of  a  president.  What 
teacher  or  visitor  has  not  had  difficulty  in  obtaining  a  confer- 
ence with  the  president  because  he  has  been  busy  with  the  above 
named  duties? 

The  following  quotation  will  illustrate  the  true  situation  with 
respect  to  the  president's  view  of  his  own  functions: 

I  realize  that  the  president  must  be  responsible  for  the  property 
of  the  state,  for  the  purchase  of  supplies,  to  some  extent  for  the 
equipment,  etc.  I  know  the  importance  of  routine,  but  nevertheless 
there  should  someone  in  the  school  able  to  give  time,  strength  and 
consideration  to  the  higher  problems  of  the  school.  You  do  not  know 
how  much  office  work  there  is  connected  with  normal  schools.  It  is 
work  that  must  be  done  by  someone.  I  expect  the  larger  portion  of 
the  president's  time  is  now  taken  up  with  office  work.28 

In  answer  to  the  question  concerning  professional  assistance 
received  by  instructors  from  the  president,  the  Wisconsin  re- 
port states:  "One  hundred  seventy-eight  conferences  with  in- 
structors brought  out  the  fact  that  the  president  had  never 
visited  any  classes  in  49  cases.  In  replies  to  the  questionnaire 
51  reported  visits ;  37  reported  no  visits.  In  two  schools  it  was 
apparent  that  the  presidents  had  exercised  a  strong  influence  on 
classroom  work.  In  others  there  was  little  evidence  of  con- 
structive supervision.  This  is  due  largely  to  the  fact  that  the 
presidents  are  so  occupied  with  administrative  details  and  prob- 
lems that  their  professional  duties  have  been  neglected.  The 
appointment  of  a  business  manager  in  the  general  office  of  the 
board  should  help  correct  this  condition.  Further  steps  should 

"Wisconsin  Survey  of  Normal  Schools,  pp.  86-87. 


Significance  of  Different  Types  of  Boards  109 

be  taken  to  relieve  the  presidents  of  routine  clerical  work  so 
that  they  may  devote  themselves  to  the  professional  supervision 
of  their  schools."27 

Since  this  study  is  concerned  primarily  with  the  best  type 
of  board  for  a  state  normal  school,  and  with  the  provisions  made 
by  the  board  for  the  business  details  of  the  institutions  it  was 
decided  to  select  a  well-known  activity  of  the  president  and 
find  out  what  the  board  expects  of  him  relative  to  this  activity. 
The  one  selected  was  the  method  of  ordering  supplies  and  pay- 
ing bills.  Since  the  latter  follows  closely  the  former,  i.e.,  when 
the  president  is  closely  identified  with  the  process  of  ordering 
supplies  he  is  also  expected  to  see  that  the  details  of  payment 
are  looked  after,  only  the  data  on  ordering  are  presented.  This 
is  summarized  in  Table  10.  During  the  school  year  1915-16  data 
on  ordering  supplies  and  paying  bills  in  the  various  normal 
schools  in  the  United  States  were  collected  by  a  personal  letter 
to  the  presidents  of  the  schools.  It  was  found  that  in  thirty-five 
states  out  of  the  forty-four  it  was  customary  to  place  practically 
the  entire  responsibility  on  the  president.  Similar  data  collected 
in  the  same  manner  in  the  spring  of  1920  show  that  twenty-five 
states  make  some  kind  of  provision  for  shifting  the  responsi- 
bility. Table  10  shows  that  five  states  have  financial  boards; 
seven  have  purchasing  agents;  ten  provide  for  the  secretary, 
finance  committee,  or  the  business  agent  to  take  part  or  all  the 
responsibility;  in  eight  states  there  is  mention  of  the  president's 
secretary,  or  the  heads  of  departments  participating  in  ordering 
supplies ;  in  thirty-one  the  president  seems  to  be  still  tied  closely 
to  this  activity;  even  in  the  other  plans  which  have  been  in- 
augurated he  makes  the  small  purchases. 

The  main  plans  for  shifting  this  responsibility  may  be  described 
as  follows :  ' '  The  president  of  the  school  prepares  and  sends  to 
the  Board  of  Control,  about  a  month  in  advance  of  the  issuance 
of  an  order,  an  estimate  of  the  cost  of  all  supplies  needed  by 
the  school,  based  upon  competitive  bids.  The  Board  approves 
or  disapproves.  On  receiving  the  approval  the  president 
enters  the  order.  At  the  end  of  each  month  the  bills  are  sent 

"Ibid.,  p.  31. 


110 


Legislative  Control  of  State  Normal  Schools 


TABLE  10 
METHODS  OF  ODERING  SUPPLIES 


STATE 

Supplies  Ordered  by 

President 

Secretary 
or 
Head  Dept. 

Sec.  Board 
Bus.  Agent 
Finance  Com 

Purchasing 
Agent 

Financial 
Board 

Alabama  

X 
X 
X 
X 

X 

Arizona  

Arkansas 

California 

X 

X 

Colorado 

X 

X 

Connecticut  _  _ 

X 
X 
X 
X 
X 

X 

Georgia 

Idaho 

X 

Illinois 

Indiana 

Towa 

X 

X 
X 

Kansas   _ 

Kentucky  

X 
X 
X 
X 
X 
X 

Louisiana  

X 

Maine  

Maryland  

Massachusetts  

Michigan  

X 

Minnesota.-  

X 

Mississippi  

X 

Missouri  

X 
X 
X 
X 

Montana  

X 

Nebraska  

New  Hampshire.-  

X 

New  Jersey._  

X 

New  Mexico  

X 
X 

New  York.  

North  Carolina.    

North  Dakota  

X 
X 
X 
X 
X 
X 

Ohio-  

Oklahoma  

X 

Pennsylvania  

Rhode  Island  

X 

South  Carolina.  _. 

South  Dakota.-  _. 

X 
X 

X 

Tennessee  

X 

Texas  

X 

Vermont  

X 

Virginia  

X 
X 
X 

Washington.      

X 

X 

West  Virginia  

X 

Wisconsin  

X 

Wyoming.    

X 

X 

Total.... 

31 

8 

10 

7 

5 

Significance  of  Different  Types  of  Boards  111 

to  the  board  for  approval.  They  check  them  and  order  the  bill 
paid  by  the  secretary  of  the  school.  An  emergency  fund — called 
a  revolving  fund — is  allowed  by  law.  The  State  Board  of  Con- 
trol has  complete  jurisdiction  over  all  expenditures.  They  have 
the  authority  to  pre-audit  every  proposed  expenditure  of  every 
state  institution."  The  correspondent  further  says,  "In  gen- 
eral the  system  is  a  satisfactory  one.  Sometimes  we  find  the  red 
tape  that  must  be  unraveled  an  annoyance.  Under  a  board 
composed  of  unreasonable  members  we  could  be  annoyed  beyond 
measure. ' ' 

"Supplies  for  normal  schools  are  purchased  through  a  pur- 
chasing agent  upon  requisition  signed  by  the  principal  and 
auditor.  All  the  bookkeeping  is  done  at  the  central  office.  It  is 
good  in  many  ways ;  the  only  drawback  is  the  delay  in  obtaining 
supplies. ' ' 

Another  correspondent,  in  speaking  of  purchases  made  by  a 
business  agent  of  the  board,  says:  "Requisitions  are  made  by 
the  president  and  sent  to  the  board ;  if  it  approves  the  requisition 
is  sent  to  the  board  of  affairs ;  if  it  approves  it  places  the  order. 
A  copy  of  the  order  is  sent  to  the  president.  The  creditors  make 
sworn  claims  in  triplicate  which  the  president  0.  K.  's  and  sends 
to  the  board;  it  passes  them  and  sends  to  the  board  of  affairs 
which  retains  one  copy  and  sends  the  other  to  the  auditor  who 
may  approve  or  disapprove;  if  he  approves  he  has  a  warrant 
drawn  for  the  bill.  Perhaps  no  greater  amount  of  red  tape  has 
ever  been  found  in  the  United  States. "  "  The  president  and  his 
secretary  attend  to  all  the  buying.  All  orders  are  placed  on 
order  blanks,  and  checks  are  sent  out  on  the  tenth  of  each  month. 
The  checks  are  approved  by  the  president  and  signed  by  the 
treasurer.  Each  month  the  bills  are  made  into  a  budget,  checks 
issued,  and  the  executive  board  [president,  one  member,  and 
treasurer]  approves  these  bills.  At  the  regular  meeting  [quar- 
terly] of  the  board  the  action  of  the  executive  committee  is  ap- 
proved. We  find  this  system  satisfactory  for  the  reason  that  it 
allows  the  buyer  to  take  advantage  of  low  prices  at  his  discre- 
tion, and  at  the  same  time  keeps  a  rigid  check  on  all  the  bills 
paid  by  the  institution."  From  a  school  where  the  president 
is  held  directly  responsible  we  have  this  information:  "Sup- 


112  Legislative  Control  of  State  Normal  Schools 

plies  are  ordered  by  the  president  of  the  school.  Bills  are  paid 
upon  the  approval  of  the  president  when  certified  to  by  him."28 

Before  considering  the  merits  of  these  plans  in  detail  the  chief 
duties  of  a  normal  school  president  should  be  considered.  F.  M. 
McMurry,  in  speaking  of  the  duties  of  a  principal  in  a  city  school 
system,  says:  ''Two  kinds  of  duties  whose  relation  to  each 
other  is  of  the  highest  significance  confront  him  from  the  start. 
On  the  one  hand  he  has  to  look  after  the  condition  of  the  build- 
ing, the  janitor  service,  and  the  fire  drills ;  to  consult  with  par- 
ents and  children  about  tardiness,  truancy,  other  misconduct, 
and  the  health  of  the  pupils ;  and  to  advise  with  teachers  about 
these  same  things,  together  with  the  lighting  of  rooms,  adjust- 
ment of  seats,  care  of  desks,  and  books.  On  the  other  hand,  he 
is  responsible  for  such  an  organization  of  the  school  as  will  se- 
cure a  high  moral  tone  and  for  such  assistance  to  the  teachers 
as  will  place  the  instruction  on  a  high  plane.  In  other  words, 
there  is  a  very  large  class  of  duties,  largely  mechanical,  that  be- 
long to  the  general  manager  and  business  man  in  distinction 
from  the  educator.  There  is  another  large  class  dealing  with 
instruction  and  the  formation  of  good  habits,  that  are  technical 
in  character,  calling  for  skill  as  an  educator.  Not  all  of  the  prin- 
cipal 's  duties  fall  easily  in  one  or  the  other  of  these  two  groups, 
but  in  the  main  the  distinction  is  valid. 

"Which  of  these  two  shall  dominate  the  other  and  occupy  the 
greater  portion  of  his  time,  is  one  of  the  first  questions  to  con- 
sider in  judging  the  efficiency  of  a  principal.  If  he  is  primarily 
a  business  manager  he  should  be  judged  as  such.  If  he  is  pri- 
marily a  professional  leader,  he  should  be  judged  very  differ- 
ently. The  purpose  of  the  school  leaves  no  doubt  about  the 
proper  decision  of  this  question,  for  it  makes  the  business  man- 
agement of  the  school  only  a  prerequisite  to  its  more  important 
work  of  education.  Proper  attention  to  physical  conditions,  and 
to  numerous  other  details  of  general  management,  secures  only 
the  conditions  on  which  effective  instruction  and  government 
depend ;  and  it  is,  therefore,  merely  a  means,  while  the  latter  are 
the  ends.  A  principal  of  a  school  must  be  closely  identified  with 

"Personal  correspondence. 


Significance  of  Different  Types  of  Boards  113 

instruction ;  and  he  must  be  judged  primarily  as  a  leader  in  that 
field,  i.e.,  as  a  supervisor  of  instruction."29 

McMurry  further  says:  "The  manifold  duties  of  principals 
should  be  classified  into  three  groups:  (1)  Those  that  are  purely 
clerical;  (2)  those  that  concern  instruction  more  or  less,  but  that 
are  largely  routine  and  therefore  require  little  special  ability; 
(3)  those  that  require  the  technical  ability  of  the  educational 
specialist.  Such  a  classification  having  been  effected,  the  sim- 
pler tasks  in  (1)  and  (2)  should  be  assigned  to  minor  officials 
in  such  a  way  that  the  principal  has  very  little  responsibility  in 
regard  to  them.  Then  a  very  definite  understanding  should  be 
reached  that  the  principal  shall  identify  himself  primarily  with 
the  duties  listed  in  group  (3)."30 

Theisen,  after  examining  ' '  the  provisions  made  by  city  boards 
of  education  for  centering  authority  in  the  hands  of  the  chief 
executive,  i.e.,  the  superintendent  and  his  assistants,"  and  by 
a  brief  examination  of  the  rules  and  regulations  of  business  con- 
cerns for  centering  authority,  concludes  that  "the  form  of  ad- 
ministration which  makes  for  efficiency  in  these  fields  is  central- 
ized or  coordinated.  It  is  one  in  which  professional  leadership 
is  recognized  and  in  which  executive  functions  are  assigned  to 
experts."31 

It  is  readily  admitted  that  the  president  of  a  state  normal 
school  is  neither  a  principal  in  a  city  system  nor  a  city  superin- 
tendent, but  we  maintain  that  his  duties  are  sufficiently  similar 
to  permit  the  application  of  the  same  principles  of  administra- 
tion. To  substantiate  this  position  we  quote  again  from  the 
Missouri  survey  of  state  normal  schools.  Under  the  heading, 
"Modern  Conception  of  a  President's  Duties,"  we  find:  "As 
educational  institutions  have  become  larger  and  more  complex, 
the  mass  of  intersecting  relations  has  made  it  imperative  that 
the  guiding  mind  be  set  free,  for  close,  detached  study  of  the 
principles  that  govern  all  this  and  other  institutional  procedure ; 
that  time  be  provided  for  abundant  outside  observation,  com- 
parison, and  reflection ;  and  that  he  be  so  lifted  above  detail  as 

"McMurry,  F.  M.,  Elementary  School  Standards,  pp.  175-76. 
"Ibid.,  p.  210. 

"Theisen,  W.  W.,  The  City  Superintendent  and  the  Board  of  Education, 
p.  100. 


114  Legislative  Control  of  State  Normal  Schools 

to  serve  steadily,  without  waste  or  hurry,  his  main  function — 
to  be  the  inspiring  power  and  illuminating  interpreter  behind 

the  whole  organization Missouri   state  normal   schools, 

with  certain  exceptions,  are  an  interesting  study  in  the  respect 
just  noted.  Administrative  perspect  is  largely  lacking ;  all  pow- 
ers, great  and  small,  radiate  directly  from  the  presidents.  In 
one  the  president  runs  the  book  store,  revises  the  registration 
of  every  student,  and  superintends  the  outlay  of  every  penny; 
in  another,  the  president  registers  every  student  in  so  far  as 

this  is  physically  possible He  has  recently  arranged 

for  aid  in  checking  up  each  student's  record  for  graduation,  but 
passes  finally  on  each  himself,  often  reversing  or  modifying  the 

conclusions  of  his  assistant At  a  third  school  the  credit 

records  of  all  graduates  for  the  decade  or  more  that  the  en- 
quirers studied  were  laboriously  worked  out  in  the  handwriting 
of  the  head  of  the  institution.  Administration  of  this  type  can 
have  but  one  result;  the  guiding  officials  impress  one  as  con- 
stantly immersed  in  endless  affairs  of  surprising  littleness;  the 
schools  seem  truncated,  lacking  clear,  fresh,  and  comprehensive 
thinking  at  the  top."32 

The  president  of  the  state  normal  school  has  a  large  oppor- 
tunity to  influence  the  educational  forces  of  the  state.  A  nor- 
mal school  is  strictly  a  professional  school  with  a  single  purpose 
to  accomplish :  " .  .  .  .  institutions  established  by  the  state  to  pre- 
pare teachers  as  public  servants  for  its  schools  should  make  that 
their  sole  business  and  concern."33  If  the  purpose  is  as  herein 
stated  and  if  the  duties  of  the  president  are  as  outlined  in  the 
preceding  discussion,  it  is  quite  evident  that  the  president  should 
keep  close  to  the  processes  of  instruction.  True  inspiration 
comes  from  saturation  with  the  concrete  processes  of  the  pro- 
fession. The  concrete  processes  of  teacher  training  are  con- 
cerned with  professionalized  subject-matter  courses,  with  an 
analysis  of  the  teaching  qualities  in  prospective  teachers,  and 
with  the  highly  technical  processes  of  the  effect  of  each 
course  upon  the  qualities  possessed  by  the  candidate.  The 


""Bulletin   No.   14,   The  Carnegie  Foundation  for  the  Advancement  of 
Teaching,  p.  274. 
p.  78. 


Significance  of  Different  Types  of  Boards  115 

president  cannot  therefore  radiate  that  professional  spirit  un- 
less he  closely  identifies  himself  with  the  teaching  processes  of 
the  institution. 

When  the  board  of  control  recognizes  the  importance  of  re- 
lieving the  president  of  the  details  of  the  office  so  that  he  may 
put  his  energy  where  it  properly  belongs,  it  still  faces  the  im- 
portant problem  of  providing  for  the  efficient  handling  of  the 
necessary  office  details  within  the  school.  Some  attempts  at  re- 
lief have  been  made  in  part  because  of  a  recognition  of  the  facts 
recited  above,  but  largely  because  of  a  desire  to  introduce  so- 
called  scientific  management  into  educational  institutions.  Suf- 
fice it  to  say  that  most  of  these  attempts  have  originated  in  the 
offices  of  the  existing  financial  boards.  As  already  pointed  out 
by  the  data  in  Table  10,  there  are  financial  boards,  purchasing 
agents,  finance  committees,  secretaries  to  presidents  for  handling 
financial  details;  there  is  also  evidence  that  the  president 
assumes  the  entire  responsibility.  How  is  a  financial  board 
organized  with  respect  to  the  normal  school  and  other  boards? 
The  Board  of  Control  of  West  Virginia,  the  Board  of  Control 
and  Economy  of  Alabama,  the  Board  of  Control  of  Texas  and 
the  State  Board  of  Control  of  California,  are  type  of  financial 
boards. 

By  way  of  illustration,  the  first  named  board  consists  of  three 
members  and  is  appointed  by  the  governor  for  a  term  of  six 
years.  This  board  receives  and  disburses  appropriations  made 
by  the  state,  and  all  moneys  collected  by  all  state  institutions. 
The  heads  of  these  institutions  are  required  to  report  to  the 
Board  of  Control  every  penny  collected,  according  to  a  pre- 
scribed form  which  shows  (a)  date  of  collection,  (&)  name  of 
person  or  firm  from  whom  collected,  (c)  purposes  and  period 
of  time,  and  (d)  itemized  and  total  amount.  This  board  has 
a  secretary  who  looks  after  its  publications,  forms,  records,  and 
general  correspondence ;  it  also  has  a  purchasing  agent,  a  super- 
intendent of  buildings  and  construction,  an  expert  accountant, 
and  an  office  force  of  considerable  size.  Each  of  the  three 
members  receives  $5,000  per  year. 

From  this  description  it  will  be  seen  that  all  expenditures, 
including  repairs  and  improvements,  or  purchases  of  any  kind, 


116 


Legislative  Control  of  State  Normal  Schools 


must  be  decided  upon  by  correspondence  with  the  board,  by  a 
visit  of  some  member  or  employee  of  the  board  to  the  institu- 
tion, or  by  the  principal  to  the  board.  The  only  exceptions  to 
this  are  in  the  case  of  small  items  needed  for  immediate  use  in 
the  laboratories,  and  of  supplies  for  the  dormitories  which  must 
be  purchased  locally.  For  these  emergencies  the  principal  at 
the  beginning  of  his  administration  is  given  a  small  sum, 
usually  $100  or  $200,  which  is  called  "an  advance  allowance." 
From  this  fund  the  principal  pays  these  emergency  bills,  taking 

TABLE  11 

SHOWING   COMPARISON   OP   PRICES   ON   ARTICLES   NEEDED   BY   A   SCHOOL 

DORMITORY 


Name  of  Article 


Paid  by 
Board 


Local 
Retail 


Local 
Wholesale 


Fine  granulated  cane  sugar  $     .07% 

Kellogg 's  toasted  corn  flakes  2.85 

Black  pepper  .15 

Old  Reliable  coffee,  cwt 24.71 

Vinegar    .13 

Octagon  soap .04 

Full  cream  cheese  .17 

Gold  Medal  flour,  bbl 7.00 

Water  White  oil  12% 

Diamond  oyster  crackers  .06 

Breakfast   bacon   18% 

Pure   lard   11% 

S.  C.  hams  17% 

California  evaporated  peaches  .08 

Sweet  mixed  pickles,  8  kg.  10  gal 5.25 

Lima  beans  .09% 

Boiled  oats,  cs 2.85 

Arbuckle's  roasted  coffee,  cwt 19.00 

Standard  corn,  doz .75 

Puffed  rice,   cs 2.85 

Early  June  peas,  doz .90 


&     .09 
2.97 

.18 
30.00 

.25 

.04 

.20 
8.00 

.15 

.07 

.22 

.13 

.22 

.12% 
9.00 

.08  y3 

3.00 

21.00 

.90 

5.00 

1.00 


$     .07% 
2.85 

.15 
24.71 

.22 

.04 

.17% 
7.00 

.12 

.06% 

.21 

.14 

.21 

.07% 
7.00 

.09 

2.90 

19.00 

.75 
4.25 

.90 


receipts  in  duplicate,  one  of  which  he  files  in  his  own  office,  the 
other  he  sends  to  the  board  which  reimburses  him  to  the  amount 
of  the  expenditure.     However,  all  supplies  of  any  consequence 
must  be  ordered  in  advance  by  requisition  upon  the  board. 
The  advantages  claimed  for  Boards  of  Control  are  as  follows: 

A.     That  they  are  economical,  i.  e.,  the  Board  of  Control  saves 
considerable  money  in  purchasing  supplies.    Table  11  shows  that 


Significance  of  Different  Types  of  Boards  117 

there  is  not  a  great  deal  of  difference  between  the  prices  quoted 
by  one  wholesale  store  and  the  prices  paid  by  the  board  of  con- 
trol on  food  supplies  for  the  dormitory.  There  is,  however,  a 
wide  difference  between  the  local  retail  price  which  the  former 
local  board  paid  and  the  wholesale  price  now  paid  by  the  board 
of  control  on  food  supplies.  There  is  also  a  greater  difference 
where  permanent  contracts  are  made  for  different  kinds  of  school 
supplies.  This  is  shown  by  several  typical  examples  :34 

Board 

School  Contract 

Price  Price 

Remington  typewriter  $  50.00  $  35.00 

Auditorium  chairs  (800)  ea.         1.35  1.15 

Knabe  grand  piano  485.00  395.00 

Quality  of  coal  ton        4.25  3.85 

Laboratory  furniture  960.00  827.00 

B.  That  by  being  state-wide  instead  of  local,  the  same  ba- 
sis may  be  used  for  the  classification  of  receipts  and  expendi- 
tures among  the  different  schools  of  the  state.    This  fact  makes 
it  possible  to  say  that  school  A  has  spent  ten  per  cent  or  five 
per  cent  more  for  office  supplies  than  school  B.    In  like  manner 
all  other  expenditures  may  be  compared.      The    disadvantage 
in  not  having  a  common  basis  for  the  classification  of  receipts 
and  expenditures  may  readily  be  seen  by  any  one  who  attempts 
to  compare  items  of  expenditure  as  reported  by  most  state  in- 
stitutions.    Keferenee  to   Appendix   B    will   substantiate  this 
claim. 

C.  That  the  system  removes  the  -school  largely  from  local 
prejudice  and  factional  fights  needs  no  argument.    The  interest 
of  the  community  as  a  whole  is  much  greater  in  the  normal 
school,  for  all  realize  that  the  board  of  control  acts  for  the  inter- 
ests of  all   citizens  and  not  for  a  chosen   few.     If  supplies 
are  purchased  locally  the  purchaser  is   generally  accused  of 
favoritism;  when  supplies  are  purchased  by  a  state  board  the 
school  avoids  this  criticism. 

D.  That  the  system  offers  an  opportunity  for  expert  admin- 
istration  has   already   been  stated,   but   should  be   mentioned 
as  a  particular  advantage.     As  now  organized  in  W.  Va.  the 
Board  of  Education  and  the  Board  of  Control  have  men  of  high 

"Normal  School  Records,  Athens,  W.  Va. 


118  Legislative  Control  of  State  Normal  Schools 

educational  and  business  standing.  The  secretary  of  the  Board 
of  Education  has  made  a  special  study  of  educational  problems, 
and  the  president  of  the  Board  of  Control  is  a  man  of  recog- 
nized business  ability.  The  buyer,  the  superintendent  of  build- 
ings and  construction,  the  accountant  and  other  employees  are 
specialists  in  their  fields. 
The  disadvantages  of  such  boards  are  as  follows: 

A.  The  system  works  slowly,  and  the  time  lost  in  operating 
it  can  hardly  be  measured  in  dollars  and  cents.  Table  12,  relat- 
ing to  purchases  for  one  institution  and  covering  a  period  of 
six  months  for  each  of  three  years,  shows  exactly  the  time  which 
elapsed  between  making  the  requisition  and  the  notice  of  pur- 
chase. The  date  of  receiving  the  article  is,  of  course,  always 
much  later.  It  will  be  noted  that  the  time  varies  anywhere  from 
two  days  to  210  days.  Items  upon  which  the  board  asked  for  com- 
petitive bids  naturally  require  considerable  time,  but  in  prac- 
tically all  cases  the  time  seems  unnecessarily  long;  no  doubt 
part  of  the  delay  was  caused  by  the  great  amount  of  executive 
attention  as  well  as  detailed  work  required  of  the  board. 

Sometimes  there  is  so  much  delay  in  the  payment  of  bills  that 
creditors  become  impatient.  This  is  especially  true  of  farmers, 
who  like  to  turn  their  produce  into  ready  cash;  if  they  cannot 
do  this  they  prefer  to  sell  elsewhere,  or  charge  the  school  a  price 
which  will  compensate  for  the  delay.  Business  firms,  too,  be- 
come impatient  and  it  is  sometimes  necessary  to  ask  them  to  ex- 
tend the  thirty-day  discount  period  on  bills.  For  example,  if 
items  are  purchased  on  the  first  or  second  of  the  month  the  bill 
is  approved  and  sent  to  the  board  the  thirtieth  of  that  month. 
By  the  time  it  goes  through  the  routine  of  the  office  of  the 
board  several  days  have  elapsed  before  the  check  is  returned  to 
the  office  of  the  institution  which  approved  the  bill;  it  must 
then  be  mailed  to  the  creditor.  Table  13  shows  the  time  elaps- 
ing between  sending  the  bill  to  the  board  for  payment  and  the 
time  of  sending  the  check  to  the  creditor  from  the  principal's 
office.  From  this  table  it  will  be  noted  that  the  time  when  the 
checks  arrive  from  the  board  is  very  irregular,  varying  from 
five  to  twenty-seven  days,  with  a  median  of  eighteen.  This  fact 


Significance  of  Different  Types  of  Boards  119 

TABLE  12 
SHOWING  TIME  REQUIRED  TO  SECURE  SUPPLIES  THROUGH  BOARD  OF  CONTROL 


Date   of 

Date  of  Notice 

Time 

Item  Needed 

Eequisition 

of  Purchase 

Beq. 

Office    chairs 

July 

10,  1912 

July 

12,  1912 

2  da. 

Catalogues 

« 

17, 

Aug. 

1, 

15 

Folding   chairs 

n 

19, 

<  < 

23, 

4 

Janitor  supplies 

Aug. 

23, 

Sept. 

3, 

11 

Chemicals 

« 

14, 

Mar. 

4,  1913 

210 

Cooking  utensils 

if 

24, 

Dec. 

24,  1912 

122 

Teachers  class   books 

n 

27, 

Aug. 

29, 

2 

Food    supplies 

Sept. 

4, 

Sept. 

12, 

8 

Gasoline 

t  ( 

17, 

Oct. 

1, 

15 

Creamery  butter,  50  Ibs. 

Oct. 

1, 

<  < 

8, 

7 

Tools  for  janitor 

Sept. 

25, 

i  t 

11, 

17 

Magazines   for  Library 

Oct. 

5, 

t  ( 

23, 

18 

Carbide 

a 

7, 

<  < 

9, 

2 

Typewriter   ribbons 

« 

8, 

«  < 

11, 

3 

Kerosene 

(  ( 

8, 

<  « 

11, 

3 

Microscopes 

(  t 

12, 

<  < 

23, 

9 

Books  for  Library 

Dec. 

18, 

Jan. 

23,  1913 

44 

Food   supplies 

Aug. 

12,  1913 

Aug. 

20,  1913 

8 

Coal 

i  ( 

13, 

Sept. 

3, 

21 

Chemistry    supplies 

1  1 

15, 

li 

3, 

19 

Crayon   and    erasers 

t  < 

18, 

Aug. 

21, 

3 

Window    shades 

(  t 

28, 

1  1 

30, 

2 

Physics  supplies 

Sept. 

16, 

Oct. 

20, 

34 

Magazines    and    papers 

14 

27, 

« 

14, 

l'i 

Microscopes 

Oct. 

2, 

« 

14, 

43 

Cooking    utensils 

ti 

7, 

t< 

20, 

22 

Cooking  utensils 

n 

7, 

Nov. 

8, 

32 

Covers   for   pianos 

1  1 

27, 

<  < 

12, 

16 

Maps 

Nov. 

15, 

Feb. 

2,  1914 

79 

Steel   ladders 

<  ( 

25, 

Dec. 

8,  1913 

8 

Food    supplies 

Dec. 

2, 

a 

9, 

7 

Floor  oil 

it 

4, 

a 

6, 

2 

Books  for  Library 

tt 

9, 

Feb. 

19, 

64 

Kerosene 

« 

13, 

Dec. 

27, 

4 

Brooms 

1  1 

16, 

« 

18, 

2 

Catalogs 

Mav 

19,  1914 

July 

8,  1914 

50 

Office  supplies 

July 

«, 

« 

15, 

9 

Coal 

Sept. 

1, 

52 

Furniture  for  not  later  than 

it 

11, 

Aug.   20 

i 

20, 

Aug.  12 

to  Aug.  31 

22 

Laboratory  supplies 

a 

27, 

<  « 

29,  1914 

33 

Office   supplies 

1  1 

30, 

« 

18, 

19 

Food   supplies 

Aug. 

7, 

ti 

19, 

12 

Seed   for  crops 

a 

7, 

a 

21, 

14 

M.  T.  supplies 

Sept. 

4, 

Sept. 

22, 

8 

Desk    telephone 

<  < 

8, 

<  « 

17, 

9 

Carbide 

n 

8, 

a 

10, 

2 

Gasoline 

a 

14, 

it 

22, 

8 

Food    supplies 

ti 

15, 

a 

17, 

2 

Magazines  and  papers 

Sept. 

16,  1914 

Sept. 

29,  1914, 

13  da. 

120  Legislative  Control  of  State  Normal  Schools 

Magazines  and  papers  Sept.  16  1914         Sept.  29    1914       13  da 

Subscription  to  Curr't  Evts.  Oct.  2,  3 

and    World's    Chronicle          "        30, 

Ref.  books  for  Library             "        30,  Oct.  2,  3 

Carbide                                           "        30,  Oct.  2,  3 

Lumber  for  Man'l  Tr'g.  Oct.        3,  Oct.  5,  2 

Concrete  walk  July     11,  July  21,  10 

Repairs  at  Dormitory                 "18,  "  21, 

Paint  for  Dormitory                    "18,  "  25,  7 

Window  shades                             "        29,  Aug.  13,  15 

Window  glass  Aug.    30,  8,  9 
Dem.  Sci.,  Chem.  and  Agri. 

Labs.,  plastered  and  fitted  Oct.        3,  Oct.  5,  2 


TABLE  13 

SHOWING  DATE  OP  SENDING  BILLS  TO  THE  BOARD,  AND  DATE  OF  RECEIVING 
CHECKS  FOR  SAME 


Sending  Bills 

Bec'd  Checks 

No.  Days 

1913 

1913 

Elapsing 

April 

2  

April     21  

19 

May 

3  

May       15  

12 

June 

4  

June      26  

22 

July 

5  

Aug.        1  

27 

Aug. 

4  

Aug.      18  

14 

Aug. 

25  

Aug.      30  

5 

Oct. 

2  

Oct.       23  

21 

Nov. 

4  

Nov       22  

18 

Dec. 

2  

Dec.       22  

20 

Dec. 

20  

1914 

1914 

Jan.         9  

20 

Feb. 

2  

Feb.      18  

16 

March 

4  

March    17  

13 

April 

3  

April     16  

13 

May 

1  

May      15  

14 

June 

1  

June      15  

14 

July 

6  

July      20  

.  14 

June 

18  

June      25  

7 

Aug. 

1  

Aug.      20  

19 

Sept. 

4  

Sept.      24  

_  20 

Oct. 

2  

Oct.       16  

14 

Oct. 

31  

.,  Nov.      13  

13 

Dec. 

2  

Dec.       10  

17 

1915 

Dec. 

20  

Jan.         9  

11 

makes  it  impossible  to  promise  a  creditor  his  check  at  any  par- 
ticular time.  The  Board  says,  "It  is  impossible  for  us  to  set  a 
certain  date  at  which  we  can  promise  to  forward  checks  to  you 
for  payment  of  your  bills.  Our  accounting  department  is  en- 


Significance  of  Different  Types  of  Boards  121 

gaged  practically  all  of  the  month  in  paying  off  all  the  bills  of 
the  different  state  institutions  under  the  management  of  this 
Board,  and  in  fact  sometimes  scarcely  gets  the  bills  for  one 
month  paid  before  those  of  the  next  month  begin  to  come  in. 
Some  months  the  bills  for  an  institution  are  paid  early  in  the 
month,  and  the  next  month  the  bills  for  the  same  institutions 
are  paid  considerably  later.  We  have  no  regular  order  in  which 
the  bills  of  a  particular  institution  are  paid." 

The  above  disadvantage  could  be  overcome,  first,  by  care  on 
the  part  of  the  principal  to  anticipate  the  needs  of  his  school 
several  months  in  advance,  and  not  month  by  month  or  day  by 
day,  as  is  often  the  case ;  second,  by  the  Board  giving  the  prin- 
cipal a  larger  advance  allowance  fund,  and  by  allowing  him  to 
pay  all  small  local  bills  promptly;  third,  by  keeping  a  larger 
office  force  in  the  Board's  offices  so  that  all  supplies  could  be 
ordered  immediately  upon  receipt  of  the  requisition. 

B.  Another  disadvantage  is  the  fact  that  it  is  difficult  for 
any  board  operating  at  a  great  distance  from  an  institution 
to  see  the  needs  of  the  institutions,  and  to  allow  expenditures  in 
proportion  to  these  needs.  To  call  the  Board  by  telephone  from 
one  institution  which  is  the  median  distance  for  all  institutions, 
in  this  particular  state,  costs  ninety  cents  for  a  three-minute 
conversation.  For  a  member  of  the  Board  to  make  a  trip  to 
the  institution  referred  to  above,  or  for  the  principal  to  visit  the 
Board,  costs  for  transportation  as  follows : 

Kailroad  fare — Charleston  to  Princeton  $3.50 

Chair   car   65 

Hack  or  automobile,  Princeton  to  Athens  75 

Return   trip    $4.90 

Total    (exclusive  of  hotel  bills) $9.70 

The  following  shows  the  visits  to  the  institution  covering  the 
period  indicated  by  the  dates: 

VISITS  BY  BOARD  OP  CONTROL 

November  5,  1909 Member  September   8,   1910 Member 

December  17,  1909 Member  March  3,  1911 Member 

March  21,  1910 Member  July  2,  1911 Member 

April  6,  1910 Pres.  and  Member  November  25,  1911 Member 

May  7,  1910 Two  Members  April  12,  1912 Member 

August  18,  1910 President 


122  Legislative  Control  of  State  Normal  Schools 

During  the  school  year  1913-1914  a  certain  normal  school  had 
one  visit  by  the  president  of  the  Board  and  one  by  the  Board's 
engineer.  In  the  summer  of  1914  it  had  one  visit  by  the  en- 
gineer, and  no  visits  from  September  to  January.  From  the 
foregoing  it  is  evident  that  it  is  very  difficult  for  the  Board  to 
keep  in  close  touch  with  the  needs  of  the  school,  and  for  the  prin- 
cipal to  get  action  upon  any  question  in  a  reasonable  length  of 
time. 

Thus  we  have  seen  that  a  state-unit  board  controlling  educa- 
tional and  financial  policies  with  experts  for  each  type  of  ser- 
vice is  the  only  type  of  board  which  can  fulfill  the  real  functions 
of  a  board  as  they  relate  to  teacher  training  institutions.  The 
local  multiple  or  dual  type  is  deficient  in  many  respects.  Since 
the  president  of  the  normal  school  is  a  large  factor  in  its  effi- 
ciency, he  must  be  free  to  ally  himself  with  the  professional  in- 
terests of  his  school.  The  financial  board,  which  has  many  of  the 
defects  of  a  state  purchasing  agent,  or  a  finance  committee,  and 
others  besides,  is  not  a  professional  asset  to  a  normal  school. 
Educational  ideals  and  financial  support  go  hand  in  hand  and 
must  be  controlled  by  the  same  central  authority. 

SUMMARY 

Our  problem  for  this  study  has  been  to  show  how  the  provi- 
sions made  by  legislative  enactment  and  the  interpretation  of 
these  provisions  affect  teacher  training  agencies.  In  answering 
the  question  it  was  necessary  to  exhibit  data  on  the  differ- 
ent states  having  typical  state  normal  schools.  Forty-four 
states  have  such  schools,  and  the  data  relating  to  the  legislative 
control  of  these  schools,  with  similar  data  for  most  of  the 
other  educational  institutions  found  in  each  state,  were  given  in 
outline  form  in  Section  I,  Chapter  I.  An  analysis  of  these 
data  as  a  whole  revealed  the  fact  that  there  were  distinct  types 
in  several  states.  These  types  of  control  have  been  referred  to 
as  local,  state,  multiple,  and  unit  with  a  slight  variation  in  a  few 
states. 

The  problem  was  then  broken  into  parts  and  at  the  beginning 
of  Chapter  II  these  questions  were  raised:  1.  What  is  the 
best  type  of  board  a  state  can  provide  for  its  teacher  training 


Significance  of  Different  Types  of  Boards  123 

institutions?  2.  What  details  should  be  included  in  these  pro- 
visions? 3.  What  kind  of  organization  should  the  board  make 
for  its  own  work?  4.  What  kind  of  organization  should  the 
board  provide  for  the  work  of  the  institution  it  controls? 

In  answer  to  question  1  we  have  tried  to  make  it  clear  that 
since  the  teacher  training  problem  is  one  big  unified  task  for  the 
state,  namely,  that  of  supplying  an  adequate  supply  of  trained 
teachers  for  all  its  schools,  there  should  be  a  definite  policy  lead- 
ing to  a  state-wide  program.  This  program  ctein  be  carried  out 
economically  and  efficiently  only  through  a  state-unit  type  of 
control.  In  answer  to  question  2  we  found  that  if  certain  de- 
tails were  included  or  omitted  from  legislative  enactments  the 
efficiency  of  the  board  thus  created  would  probably  be  increased. 
These  details  refer  to  methods  and  time  of  appointment  or  elec- 
tion, number  of  members  chosen,  length  of  term,  number  of  ex- 
officio  members,  and  the  compensation. 

Question  3  was  answered  by  emphasizing  a  well-established 
principle  which  makes  the  real  duties  of  a  good  board  largely 
legislative.  Since  there  are  details  relating  to  the  educational 
interests  of  the  state  and  business  details  within  the  organiza- 
tion of  the  board,  we  recommend  that  these  be  left  to  the  respect- 
ive experts  in  each  field.  By  an  analysis  of  the  work  of  the  in- 
stitution we  found  two  kinds  of  activities  necessary.  One  is 
purely  educational,  the  other  business.  The  former  is  always 
taken  care  of  by  the  teachers;  the  latter  generally  by  the  prin- 
cipal or  president.  Through  authoritative  opinions  and  argu- 
ment we  tried  to  establish  the  fact  that  the  president's  main 
functions  in  a  teacher  training  institution  relate  to  the  profes- 
sional aspects  of  the  school ;  therefore,  in  answer  to  question  4 
it  may  be  said  that  the  board  must  provide  sufficient  office  force 
to  take  care  of  all  necessary  details. 


CHAPTER  III 

PROVISIONS     RELATING     TO     TEACHER     TRAINING 

AGENCIES  PROPOSED  FOR  LEGISLATIVE 

ENACTMENT 

From  the  conclusions  arrived  at  in  the  preceding  chapter  the 
following  provisions  for  the  control  of  state  teacher  training 
agencies  are  proposed  for  legislative  enactment. 

STATE  BOARD  OF  EDUCATION 

Section  1.  Name.  Number  of  Members.  There  is  hereby  cre- 
ated a  State  Board  of  Education  which  shall  be  a  corporation 
and  as  such  may  contract  and  be  contracted  with,  plead  and  be 
impleaded,  sue  and  be  sued,  and  have  and  use  a  common  seal. 
Said  board  shall  consist  of  five  members. 

Section  2.  Appointment.  Term.  The  members  of  this  board 
shall  be  appointed  by  the  governor  of  the  state  for  the  follow- 
ing terms:  one  for  two  years,  one  for  four  years,  one  for  six 
years,  one  for  eight  years,  and  one  for  nine  years.  Thereafter 
the  governor  shall,  at  the  expiration  of  each  term,  make  an  ap- 
pointment for  the  term  of  nine  years. 

Section  3.  Salary.  Expenses.  No  member  of  this  board 
shall  receive  a  salary  for  his  services,  but  each  may  receive  a 
per  diem  of  not  more  than  ten  dollars  per  day  and  not  to  ex- 
ceed twenty  days  in  each  school  year,  and  actual  expenses  in- 
curred while  attending  the  meetings  and  performing  any  other 
duties  of  said  board. 

Section  4.  Duties.  The  board  shall  have  full  power  and  con- 
trol of  all  the  educational  and  financial  interests  of  all  state 
teacher  training  agencies,  now  including  the  state  normal  schools, 
the  department  of  education  in  the  university,  and  similar  de- 
partments in  any  other  state  institution  now  existing  or  hereaf- 
ter established.  It  shall,  upon  the  recommendation  of  its  ex- 
pert employees  and  officers,  prescribe  rules  and  regulations  for 
teacher  training  work  in  private  and  denominational  schools  and 


Provisions  Relating  to  Teacher  Training  Agencies        125 

colleges,  and  the  high  schools  within  the  state,  and  through  its 
commissioner  supervise  such  work. 

Said  board  shall  make  full  provision  for  the  financial  and 
business  routine  of  its  own  office,  and  for  the  educational  and 
business  activities  of  the  institutions  it  manages  and  controls. 
In  so  doing  it  shall  appoint  and  determine  the  salary  of  a  sec- 
retary who  shall  be  an  educational  expert  and  who  shall  co- 
operate with  the  heads  of  the  institutions  and  with  the  commis- 
sioner of  education  in  matters  concerning  the  board,  the  in- 
stitutions, and  the  public  schools  of  the  state.  It  may  also  ap- 
point a  business  manager,  a  buyer,  and  such  other  clerical  help 
as  may  be  necessary  in  performing  its  duties.  It  shall  appoint 
the  heads  of  the  teacher  training  institutions.  It  shall  appoint 
the  heads  of  the  institutions,  who  shall  at  all  times  act  as  an 
advisory  committee  to  the  board.  The  board  shall  also 
provide  sufficient  office  help  within  each  institution  to  carry 
on  the  business  details,  and  shall  with  the  advice  and 
consent  of  the  above  named  advisory  committee  determine  what 
details  are  to  be  handled  at  each  institution  and  what  details 
are  to  be  handled  in  the  central  office  of  the  board.  After  the 
above  executive  duties  are  attended  to  the  chief  work  of  the 
board  shall  concern  the  aims,  purposes,  and  policies  of  the  in- 
stitutions in  respect  to  the  service  that  each  renders  the  state. 

DISTINCTIVE  FEATURES  OP  PROPOSED  LEGISLATION 
The  above  is  an  attempt  to  provide  a  board  for  the  effective 
control  of  state  teacher  training  agencies.  This  study  does 
not  undertake  to  present  data  on  the  policy  of  a  unit 
board  for  all  state  educational  institutions,  yet  almost  every 
step  points  towards  such  a  board.  Hence  these  provisions  have 
been  constructed  so  that  they  may  be  easily  converted  into  such 
a  board  as  shown  by  the  graph  on  page  126  and  such  a  procedure 
would  certainly  be  of  no  disadvantage  to  the  teacher  train- 
ing institutions.  Reasons  for  the  details  of  the  above 
provisions  have  been  found  in  the  study.  It  should  be 
noted  particularly  that  an  attempt  is  made  to  define  the 
main  duties  of  the  board  in  its  responsibility  for  the  large 
constructive  educational  measures  which  concern  the  problem. 


126 


Legislative  Control  of  State  Normal  Schools 


PEOPLE: 


Gov. 


[  ADV.  PoAgp  |      |  5r 


CD. 


TYPE  OF  BOARD  SUGGESTED  FOE  STATE  TEACHER  TRAINING  AGENCIES,  IT& 
ORGANIZATION  AND  ITS  RELATIONSHIP  TO  THESE  INSTITUTIONS 

of  training  teachers.  Authority,  however,  is  centered  in  this 
board  for  all  financial  and  educational  details.  Clerical  help  is 
provided  for  all  financial  details,  and  the  educational  policy  is 
secure  in  the  hands  of  educational  experts  with  a  lay  board  for 
endorsement.  Provision  is  made  for  statewide  purchases  when- 
ever they  can  be  made  to  advantage,  and  clerical  help  for  com- 
puting unit  costs  and  uniform  accounting.  Sufficient  help  is 
given  to  the  office  of  each  institution  to  manage  in  an  efficient 
planner  the  details  which  naturally  fall  to  it.  With  the  ad- 


Provisions  Relating  to  Teacher  Training  Agencies        127 

vice  and  consent  of  the  heads  of  the  institutions  the  board 
should  agree  upon  the  distribution  of  business  details  between 
its  office  and  the  offices  at  several  institutions.  With  such  a  plan 
the  main  duties  of  the  board  must  concern  the  large  construct- 
ive measures  as  they  relate  to  each  institution,  and  the  head  of 
the  institution  must  give  his  time  and  energy  to  professional 
rather  than  business  details.  The  Committee  on  Normal  School 
Standards  and  Surveys  of  the  National  Council  of  Normal 
School  Presidents  and  Principals  says: 

The  administration  and  control  of  normal  schools  obviously  depends 
upon  what  the  state  has  established  by  action  of  its  legislature.  Naturally 
this  control  is  different  in  different  states.  Every  typical  form  of  adminis- 
trative control  that  has  been  tested  out  by  human  experience  has  revealed 
disadvantages  and  defects.  It  is  probable  that  in  the  future  as  in  the  past 
changes  in  the  type  of  administrative  control  will  be  made.  The  tendency 
toward  centralization  of  control  will  probably  be  extended  in  many  states 
to  include  the  normal  schools.  The  normal  schools  have  nothing  to  fear 
from  centralized  control  per  se.  If  the  centralized  control  were  biased  in 
its  judgment  or  were  controlled  by  influences  uniformed  and  unsympathetic, 
the  normal  school  might  temporarily  suffer.  It  would  not,  however,  per- 
manently suffer  because  it  is  so  close  to  the  source  of  all  social  power  and 
so  serviceable  to  public  education.  Therefore,  it  may  be  fairly  said  that 
the  normal  school  is  largely  indifferent  to  the  type  of  administrative  con- 
trol which  the  state  may  adopt.  Yet  it  is  our  belief  that  the  normal  schools 
secure  the  best  means  and  opportunity  for  free  development  when  the 
board  of  control  is  composed  chiefly  of  laymen  rather  than  of  professional 
educators. 

An  efficient  board  for  teacher  training  agencies  would,  there- 
fore, contain  at  least  the  following  provisions: 

1.  A  single  unit  board  having  control  of  and  being  responsible  for  all 
educational  and  financial  matters. 

2.  The  members  appointed  by  the  governor  or  elected  at  a  separate 
election. 

3.  The  number  of  members  should  be  small. 

4.  There  should  be  no  ex-officio  members. 

5.  The  length  of  term  should  be  reasonably  long,  at  least  longer  than 
that  of  the  governor  of  the  state. 

6.  The  members  should  serve  without  compensation. 

7.  Their  duties  should  be  mainly  those  relating  to  constructive  policies, 
rather  than  those  relating  to  professional,  business,  or  clerical  details. 

As  a  matter  of  interest  and  by  way  of  throwing  more  light 
upon  the  legislative  provisions  relating  to  state  normal  schools 


128  Legislative  Control  of  State  Normal  Schools 

as  they  now  exist,  Table  14  has  been  constructed  from  the 
seven  points  listed  above.  To  each  point  is  assigned  a  credit  of 
10,  making  a  possible  total  of  70  credits  for  any  state  having 
provisions  for  controlling  its  state  normal  schools  approximating 
the  above  outline.  Let  it  be  understood  that  this  is  not  an  at- 
tempt at  scientific  measurement,  but  merely  a  device  to  show 
wherein  each  state's  provisions  are  weak  in  comparison  with 
the  ideals  advocated  in  this  study.  By  reference  to  Tables  1  to  8, 
the  data  for  such  comparison  will  be  found. 

Since  some  variation  is  found  on  these  points  in  some  states 
it  is  necessary  to  give  extra  credit  or  deduct  according  to 
the  standards  advocated  in  the  study.  If  a  state  has  a  unit 
board  for  all  its  state  normal  schools,  it  is  given  a  perfect 
score  of  ten.  If  it  has  the  dual  type  of  control,  i.  e.,  a  financial 
board  also,  it  is  scored  5.  If  it  has  a  joint  board  of  higher  curricu- 
la, or  council  of  education,  it  is  given  five  additional  points.  If  it 
has  two  ex-officio  members,  it  is  given  zero ;  if  one  and  that  the 
state  superintendent,  it  is  given  5.  In  scoring  on  the  length 
of  term  the  median  of  the  states  is  accepted.  This  is  approxi* 
mately  five  years.  For  a  shorter  term  than  this  zero  is  given, 
while  one-half  credit  extra  is  given  for  every  year  longer  than 
the  median.  In  the  number  of  members  again  the  average  is 
taken  rather  than  the  ideal  which  we  have  established.  If  the 
state  board  has  fewer  than  six  members  an  extra  credit  of  one- 
half  is  added,  if  more  than  six  one-half  is  deducted  for  each 
member.  A  salaried  board  is  one  that  receives  more  than  ex- 
penses and  a  reasonable  per  diem.  The  most  important  point 
and  yet  the  most  difficult  to  rate  upon  is  the  distinction  of  du- 
ties. Since  only  four  states  indicate  any  intention  to  define  the 
duties  as  to  kinds,  it  was  necessary  to  give  these  a  little  extra 
credit  and  rate  the  others  uniformly  low  on  this  point.  A  credit 
of  two  and  one-half  points  was  decided  upon.  It  seems  reason- 
able that  the  board  may  rightfully  spend  one-fourth  of  its  time 
upon  executive  matters,  the  other  three-fourths  upon  constructive 
measures,  and  none  at  all  in  clerical  business  or  professional 
details. 

Table  15  has  been  constructed  from  Table  14,  and  shows  the 
relative  rank  of  the  forty-four  states  included  in  this  study. 


Provisions  Relating  to  Teacher  Training  Agencies        129 


TABLE  14 


Unit  Board  for 
Normal  Schools  — 
Educational  and  Financial 

Appointed  by  Governor  or 
Elected  at  Separate  Elec't 

Not  more  than 
Six  Members 

No  Ex-Officio  Members 

Term  at  least 
Five  Years 

Per  Diem  and 
Expenses  Only 

Duties  %  Legislative 
and  y\  Educational 

Total  Scores 

Alabama 

10    5 

10 

10 

0 

10    %Yz 

10 

Vl* 

61 

Arizona 

0     4 

10 

10    \y2 

5 

o 

10 

5 

45  5 

Arkansas 

10 

10 

10    1 

0 

o 

10 

5 

46 

California    ... 

0 

10 

10 

0 

0 

10 

5 

35 

Colorado 

10 

10 

10 

5 

10    y2 

10 

?M 

Connecticut  

10 

10 

8      Yz 

0 

10    Yz 

10 

914 

51  5 

Georgia.  .. 

0 

10 

10     y2 

0 

0 

10 

2Y2 

33 

Idaho 

10 

10 

9 

5 

10 

in 

2Yz 

56  5 

Illinois 

10 

10 

8      Yz 

0 

10     Yz 

10 

91^ 

51  5 

Indiana  

10    4 

10 

10    1 

5 

0 

10 

52  5 

Iowa  _.   .           .... 

10 

10 

8      Yz 

10 

10     y2 

10 

91^ 

Kansas         

10 

10 

10     Yz 

5 

0 

0 

91^ 

38 

Kentucky 

0 

10 

10         1 

5 

0 

10 

5 

41. 

Louisiana..  .  .        .    . 

10 

10 

10 

0 

10     Yz 

10 

<>V2 

Maine    

10 

10 

10    1 

5 

0 

10 

3 

49. 

Maryland  

10 

10 

9      Yz 

10 

10     1 

10 

94 

Massachusetts  

10 

10 

10 

5 

0 

10 

?M 

47  5 

Michigan.  

10 

0 

10     Yz 

10 

10     Yz 

10 

53.5 

Minnesota  

10 

10 

9 

5 

0 

10 

?Y2 

46.5 

Mississippi  

10 

10 

9 

0 

10     Yz 

10 

52. 

Missouri  

0 

10 

10 

5 

10     Yz 

10 

?V2 

10 

10 

9 

0 

0 

10 

9V2 

41.5 

Nebraska   

10 

10 

10     Yz 

0 

10 

10 

?V2 

New  Hamshire..  .. 

10 

10 

10     Yz 

5 

10 

10 

58 

New  Jersey  

10 

10 

9      Yz 

5 

10     Yz 

10 

2Y> 

57 

New  Mexico  

0 

10 

10     Yz 

10 

0 

10 

2Y> 

New  York 

10 

10 

7 

10 

10    3 

10 

?14 

62.5 

North  Carolina  

0 

10 

10 

10 

10     Yz 

10 

53. 

North  Dakota.    

10 

10 

10    3 

0 

10    y2 

0 

?V2 

45.5 

Ohio   . 

0 

10 

10 

10 

10 

10 

5?  5 

Oklahoma- 

10 

10 

10 

5 

0 

10 

2Y> 

47  5 

Oregon  _. 

10 

10 

10 

0 

10     Yz 

10 

2Yz 

53 

Pennsylvania  

0 

10 

8      Vz 

10 

0 

10 

7V2 

Rhode  Island.... 

10 

10 

10  iy2 

0 

10 

10 

53  6 

South  Carolina  

10 

0 

9 

0 

10     Yz 

10 

2Yz 

4? 

South  Dakota.  

10 

10 

10      Y2 

10 

10      M 

0 

2Yz 

53  5 

Tennessee  

10 

10 

8      H 

10 

10      H 

10 

2Yz 

56  5 

Texas  

0 

10 

10 

5 

10      H 

10 

?V2 

Vermont  

10 

10 

10 

10 

10 

10 

6?  5 

Virginia  

0 

10 

7 

n 

0 

10 

2Yz 

?9  5 

Washington  

0    5 

10 

10   \Yz 

10 

10      ^ 

10 

?V2 

59  5 

West  Virginia.-  

5 

10 

10 

5 

10      H 

0 

Wisconsin  

10 

10 

8 

5 

10 

10 

?.^z 

55  5 

Wyoming  

10 

10 

10 

5 

10     Yz 

10 

2Yz 

130  Legislative  Control  of  State  Normal  Schools 

TABLE  15 

STATES  BANKED  ACCORDING  TO  TOTAL  SCORES  (BASED  ON  TABLE  14) 


Vermont/    62.5 

New  York  62.5 

Maryland    62. 

Iowa    61. 

Alabama    61. 

Washington    59.5 

Colorado   58. 

New  Hampshire  58. 

Wyoming    _ 58. 

New  Jersey  57. 

Idaho    56.5 

Tennessee     56.5 

Wisconsin     55.5 

Michigan    54.5 

Rhode  Island  53.5 

South  Dakota  53.5 

Louisiana    53. 

Nebraska    53. 

North  Carolina  53. 

Oregon    r  53. 

Ohio     52. 

Mississippi    52. 


Indiana     52.5 

Illinois    51.5 

Connecticut    51.5 

Maine    _ „ 49. 

Texas    48. 

Oklahoma  _ 47.5 

Massachusetts    47.5 

Missouri    47.5 

Minnesota    46.5 

Arkansas     46. 

Arizona     45.5 

North  Dakota  45.9 

West    Virginia    43. 

New  Mexico  43. 

South  Carolina  42. 

Montana  41.5 

Pennsylvania   41. 

Kentucky    41. 

Kansas   35. 

California     35. 

Georgia     33. 

Virginia    29.5 


CHAPTER  IV 

RESULTS   OF   SUGGESTED  PROVISIONS 

As  a  possible  outcome  of  the  conclusions  reached  in  this  study 
it  is  hoped :  First,  that  the  unit  type  of  board  will  be  provided  for 
at  least  all  state  teacher  training  agencies,  and  that  these  boards 
will  have  the  supervision  of  all  other  teacher  training  agencies 
which  may  exist  in  the  state.  Second,  that  the  duties  of  the 
board  will  be  confined  largely  to  legislative  and  approval  meas- 
ures and  that  all  educational  and  business  details  will  be  placed 
in  the  hands  of  experts.  Third,  that  the  board's  concept  of 
the  duties  of  its  chief  educational  expert  (president  of  the  nor- 
mal school)  will  be  such  that  it  will  provide  a  business  organi- 
zation which  he  needs  merely  to  supervise,  and  that  it  will 
allow  him  to  spend  the  major  part  of  his  time  with  the  pro- 
fessional activities  of  the  institution.  Fourth,  it  is  further  be- 
lieved that  these  principles  will  make  possible  and  lead  to  the 
adoption  of  a  classification  of  receipts  and  expenditures  and  of 
other  business  forms  which  will  give  much  aid  in  studying  the 
educational  problems  relating  to  teacher  training  agencies  and 
other  institutions. 

The  Committee  of  Eleven,  in  speaking  of  a  plan  for  normal 
school  statistics,  says:  "State  normal  schools  are  now  more 
numerous  and  probably  more  essential  and  more  appreciated 

than  any  other  kinds  of  state  educational  institutions 

Their  organization  is  simple,  their  support  is  direct A 

proper  study  of  statistics,  a  proper  classification  of  organized 
efforts,  a  proper  conception  of  what  is  being  done  everywhere 
in  the  endeavor  to  train  and  to  educate  teachers  must  enlarge 
the  horizon  of  these  schools,  must  compel  them  to  recognize  their 
chances,  must  urge  them  to  enlarge  their  field  of  usefulness  and 
power,  and  must  enable  them  to  enter  upon  activities  and  pos- 
sibilities that  would  make  it  possible  for  them  to  participate  in 
the  remarkable  development  that  the  United  States  is  receiving. 
....  Without  this  knowledge  of  what  is  going  on  elsewhere, 


132  Legislative  Control  of  State  Normal  Schools 

without  this  touch  of  comparative  standards  and  undertakings, 
without  this  chance  to  keep  abreast  of  the  times,  this  kind  of 
educational  work  will  remain  provincial,  theoretical,  and  inde- 
terminate." 

If  the  ideals  of  this  committee  and  the  possibilities  contained 
in  the  legislation  proposed  in  Chapter  III  of  this  study  are  to  be 
realized  there  must  be  adopted  a  system  of  classifying  receipts 
and  expenditures  as  well  as  the  use  of  uniform  business  forms 
by  boards  and  principals  of  state  normal  schools.  An  exam- 
ination of  many  systems  now  in  use  reveals  similarity  in  mean- 
ing but  such  great  diversity  in  terms  that  it  is  practically  im- 
possible to  tell  whether  a  certain  item  of  expenditure  has  been 
made  for  operating  a  boarding  house  or  for  paying  a  teacher's 
salary.  A  careful  comparison  gives  evidence  that  all  receipts 
may  be  classified  under  three  main  heads:  (A)  Capital  Expend- 
itures; (B)  Maintenance;  (C)  Operation. 

An  appropriation  made  by  the  legislature  could  be  made 
under  these  three  headings  as  easily  as  under  (a)  buildings  and 
grounds,  (6)  repairs  and  improvement,  and  (c)  current  ex- 
pense, as  is  now  customary  in  some  states.  All  other  receipts 
could  be  placed  by  the  board  under  one  of  these  divisions.  For 
all  expenditures  the  same  classification  could  be  carried  out  with 
many  sub-divisions. 

The  classification  of  expenditures  as  given  below  in  the  first 
division  includes  everything  which  is  new  and  which  will  not  be 
consumed  in  operation.  Maintenance  includes  all  repairs  and 
replacements  which  keep  the  property  in  usable  condition. 
When  an  article  is  replaced  by  something  better,  the  difference 
in  cost  may  be  charged  to  capital.  Operation  includes  all  ex- 
penditures made  for  carrying  on  the  work  of  the  institution.1 


'The  writer  is  especially  indebted  to  the  secretary  of  the  Board  of 
Regents  of  Wisconsin  for  many  of  these  suggestions  in  the  following 
outline. 


Results  of  Suggested  Provisions  133 

A.    CAPITAL  EXPENDITURES 
I.     Land. 

Cost  of  new  land. 
II.     Land  Improvements. 

Grading,  fences,  driveways,  roads,  gutters,  curbing, 
sewers,  laying  pipe,  trees,  new  lawns,  landscape 
gardening. 

III.  Buildings  and  Fixtures. 

All  work  on  new  buildings,  or  additions.  Cost  of  ma- 
terial used,  including  transportation.  Fixtures  which 
cannot  readily  be  removed. 

IV.  Machinery. 

All  machinery  not  used  for  educational  purposes,  as 
engines,  boilers,  motors,  hoists,  and  lawn  mowers — 
not  machinery  used  for  educational  purposes. 

V.     Educational  Apparatus. 

Chemical,  physical,  physiological,  agricultural  maps, 
charts,  models,  implements,  tools,  benches,  machines, 
forges  used  in  manual  training;  dishes  for  domestic 
science — not  articles  that  are  easily  broken  or  lost, 
as  test  tubes,  and  breakers. 
VI.  Furniture  and  Furnishings. 

Desks,  office  furniture,  lockers,  library  furniture,  type- 
writers, adding  machines,  curtain  shades,  pianos, 
pictures  and  works  of  art  not  used  for  instruction; 
flower  pots,  window  boxes,  dishes  and  kitchen  ware 
for  dormitory ;  rugs  and  linoleum. 
VII.  Hand  Tools. 

Shovels,  rakes,  engineers'  tools,  and  vices  used  about 
the  building. 

Will.     Library. 

Reference    and    other    library    books.      Cards,    guide 

cards  for  catalog,  pictures,  and  library  work. 
IX.    Museum. 

Specimens  which  are  kept  for  their  general  use  whether 
used  for  instruction  or  not.  Models  or  specimens  used 
exclusively  for  instruction. 


134  Legislative  Control  of  State  Normal  Schools 

X.    Text-books. 

Text-books,     pictures    and    music    used    in    regular 
instruction.    Not  sheet  music  soon  used  up. 

B.    MAINTENANCE 
I.    Land  and  Land  Improvements. 

Keplacing  trees,  shrubs,  fertilizer. 
II.     Buildings  and  Fixtures. 

New  roofs,  painting,  replastering,  dry  batteries,  lamps, 
rewiring. 
III.    Machinery. 

Eelining  boilers,  replacing  grates,  repairing  motors. 

IV.  Educational  Apparatus. 

All  repairs. 

V.  Furniture  and  Furnishings. 

Upholstering,  refinishing,  relaying  linoleum,  replacing 

dishes. 
VI.    Hand  Tools. 

All  repairs. 
VII.    Library. 

Rebinding  books,  replacing  worn-out  books. 

C.     OPERATION 
I.     Administration. 

1.  Salaries  of  officers;  principal's  salary. 

2.  Salaries  of  clerks  and  stenographers,  bookkeepers, 

and  all  office  help. 

3.  Traveling  expenses  of  the  principal. 

4.  Stationery  and  office  supplies. 

Letterheads,  ink,  paper,  pens,  pencils,  pads,  type- 
writer and  adding  machine  supplies  used  in  the 
office — not  supplies  used  in  the  training  school. 

5.  Postage  stamps,  postal  cards,  postage  on  catalogs. 

6.  Telephone  and  telegraph — long  distance  and  local 

charges. 

7.  Express,  freight  and  drayage,  and  transportation 

of  all  material. 

8.  Printing  (other  than  stationery). 

Catalogs,    bulletins,    miscellaneous   printing   and 


Results  of  Suggested  Provisions  135 

advertising.  Not  class  record  books,  or  printing 
used  for  instruction  only. 

9.     Sundry  supplies  and  expenses — not  readily  classi- 
fiable elsewhere. 
II.     Physical  Plant. 

1.  Salaries  and  wages. 

a.  Engineers — includes   firemen   and  all   extra 
help  needed  in  keeping  the  building  heated. 

b.  Janitors — includes  cleaning,  scrubbing,  care 
of  grounds,  walks,  lawns. 

2.  Heat,  light,  water. 

All  fuel  for  lighting  or  heating — not  for  instruc- 
tion purposes. 

3.  Sundry    supplies:      Brooms,   mops,   cleaning   sup- 

plies, hooks,  wires,  nails,  lubricants,  and  all  sup- 
plies used  for  janitor  or  engineer  consumable  in 
school  expenses  for  the  main  school  year. 

4.  Sundry  expense:     Hauling  ashes,  flowers  for  dec- 

orations of  rooms  or  grounds. 

III.     Instruction. 

1.  Salaries  of  teachers.    Regular  and  substitute.    Sal- 

aries of  pianists  and  student  help  for  teachers. 

2.  Text-books:     Regular  text-books   and   also   music 

books  used  for  chorus  practice  and  class  work — 

> 

not  sheet  music  soon  used  up. 

3.  Fuel   and   power   for   instruction.     All   fuel   and 

power  used  in  the  laboratories  and  for  other  in- 
struction purposes. 

4.  Sundry  supplies:     Acids,  test  tubes,  beakers,  ink, 

crayon,  paper,  pens,  pencils,  tablets,  copybooks, 
erasers,  class  books,  sheet  music,  ribbon  for  diplo- 
mas ;  all  consumable  supplies  whatever,  including 
those  for  special  departments. 


136  Legislative  Control  of  State  Normal  Schools 

5.     Sundry   expense:     Teachers'   traveling   expenses, 
lectures  of  a  special  nature,  special  charts  and 
other  instructional  expense  not  classifiable  else- 
where. 
IV.     Library. 

1.  Salaries  of  librarian  and  assistants — regular  and 

student  help. 

2.  Subscription   to   newspapers    and   periodicals — all 

periodicals   taken   for  the   library,   but  not  the 
binding  of  them. 

3.  Sundry  supplies  and  expenses — temporary  covers 

for  books,  magazines  and  other  supplies. 
V.     Student  Welfare  Activities. 

1.  Student   health.     Medical  inspection  provided  by 

the  school ;  medical  advice  for  pupils ;  lectures  on 
sanitation. 

2.  Entertainments,  lectures  and  concerts. 

3.  Athletics.     Money  paid  for  coaching,  traveling  ex- 

penses of  teams,  expenses  of  umpires,  referees. 

4.  Student   organizations.     Debating   or  literary  so- 

cieties; student  publications. 
VI.     Summer  Session. 

This  includes  all  sub-items  of  all   the   main   headings 
listed  above  and  is  intended   to  list    all  summer 
school  expenses  for  the  main  school  year. 
VII.     Insurance.     All  payments  for  state  insurance,  or  boiler 

insurance. 

VIII.  Undistributed  expense.  All  expense  not  classifiable 
elsewhere.  Care  should  be  taken  to  put  very  few 
items  under  these  general  headings. 

An  accurate  classification  of  items  of  expenditure  will  fall 
short  of  its  purpose  unless  there  are  uniform  blanks  for  all  op- 
erations dealing  with  the  finances.  The  following  business  forms 
are  recommended  for  use  in  the  principal's  office  and  in  the 
office  of  the  board. 


Results  of  Suggested  Provisions  137 

A.    FORMS  FOR  USE  IN  THE  PRINCIPAL'S  OFFICE 

1.  Report  of  cash  collected. 

2.  Report  of  enrollment  and  attendance. 

3.  Inventory  of  school  property. 

4.  Requisition  blank. 

5.  Payroll  of  teachers  and  other  employees. 

6.  Voucher  to  accompany  all  bills. 

7.  Report  of  cash  expended  by  the  principal. 

B.    FORMS  FOR  USE  IN  THE  BOARD'S  OFFICE 

1.  Quotation  blanks. 

2.  Purchasing  order. 

3.  Appropriation  ledger  sheet. 

4.  Expense  ledger  sheet. — Normal  school. 

5.  Expense  ledger  sheet. — Training  school. 

6.  Expense  ledger  sheet. — Dormitory. 

7.  Register  vouchers. 

8.  General  balance  sheet. 

9.  Monthly  statement  of  receipts,  expenditures,  and  balances. 

10.  Monthly  statements  of   unit   costs   per   general   expendi- 

tures. 

11.  Annual  statements  of  unit  costs  per  subject. 

C.    FORMS  FOR  USE  IN  THE  BOARD'S  ANNUAL  REPORT 

•  1.  Statement  setting  forth  the  kind  of  school  and  its  pur- 
pose. 

2.  Cash  collected  from  enrollment  fees. 

3.  Appropriations   and   other   receipts. 

4.  Voucher  register. 

5.  Summary  of  expenditures. 

6.  Special  personal  service  record. 

7.  Enrollment  and  graduation  record. 

8.  Instructional  cost  per  department. 

9.  Student  clock  hour  load. 

10.  Cost  per  student  clock  hour  load. 

11.  Graphs  and  comparative  tables. 


138  Legislative  Control  of  State  Normal  Schools 

DETAILS  OF  FORMS  RECOMMENDED 

A.    FORMS  FOR  USE  IN  THE  PRINCIPAL'S  OFFICE 

1.     Record  of  Cash  Collected. 

The  enrollment  of  pupils  is  the  first  step  at  the  beginning  of 
each  new  school  year.  This  process  entails  the  collection  of 
certain  fees  which  must  be  reported  to  the  central  authority; 
hence  the  necessity  of  a  cash  collected  blank.  Provisions  are 
made  on  this  blank  for  the  following  items:  (a)  classification 
of  pupils  enrolling;  (&)  date;  (c)  name;  (d)  time  covered  by 
the  payment;  (e}  enrollment  fee ;  (/)  laboratory  fee;  (g)  room; 
(ft)  board;  (t)  miscellaneous;  (j)  recapitulation. 

Proper  classification  of  pupils  should  be  insisted  upon.  Under 
the  heading  of  laboratory  fees  the  name  of  the  laboratory  in 
which  the  pupil  is  working  should  be  given;  this  will  save 
many  columns,  and  make  the  report  less  bulky.  Non-resident 
and  other  miscellaneous  fees  which  are  collected  infrequently 
may  also  be  written  in  order  to  save  making  the  form  too 
bulky. 

A  suggested  form  is  shown  on  page  139. 


Results  of  Suggested  Provisions 


139 


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140 


Legislative  Control  of  State  Normal  Schools 


2.     Report  of  Enrollment  and  Attendance. 

A  report  of  enrollment  and  attendance  should  be  made  at 
least  twice  each  year.  The  items  which  the  form  contains 
are  self-explanatory: 

a.  Number  enrolled  in  the  regular  normal  course. 

b.  Number  enrolled  in  the  secondary  course. 

c.  Number  enrolled  in  music. 

d.  Number  enrolled  in  art. 

e.  Number  enrolled  in  expression. 

/.     Number  enrolled  in  short  or  other  courses. 
g.     Total  in  all  courses. 
7i.     Number  counted  more  than  once. 
i.     Total  net  enrollment. 

j.     Training  school  enrollment  must  not  be  included  in  above. 
k.     Number  who  withdrew  after  enrolling,  and  causes  of  with- 
drawal. 


REPORT  OF  ENROLLMENT  AND  ATTENDANCE 


State  Normal  School 

Semester,  Ending 

,  19  .. 

Enrollment  During  Semester  

Normal  Course    .               

Boys 

Girls 

Total 

Secondary  Course  

College  Course  

Music  

Art  ~  

Expression  

Total.  

Counted  more  than  once 

Net  Enrollment  

Practice  School  Enrollment  

Withdrew  during  Semester  

Causes  of  Withdrawal: 

It  may  be  noted  that  this  form  is  so  constructed  that  there  is  no  oppor- 
tunity to  count  the  same  pupil  twice  and  thereby  swell  the  enrollment  be- 
yond what  it  should  be. 


Results  of  Suggested  Provisions 


141 


3.     Inventory  of  School  Property. 

At  the  beginning  of  each  school  year  there  should  be  a  care- 
ful inventory  of  all  school  property.     This  should  include  the 
following  items: 
a.     Detailed  description  of  the  property,  and  the  use  to  be  made 

of  the  room  or  building  during  the  year. 
6.     Age — length  of  time  it  has  been  used. 

c.  Original  cost. 

d.  Additions. 

e.  Present  value. 

/.     Time  to  be  occupied. 

INVENTORY  OF  NORMAL  PROPERTY 


*" 

^ 

Detailed  Description    Including 
Present  Condition  and  Use 

Age  in 
Years 

Original 
Cost 

Additions 
(Date) 

Present 
Value 

Days  per  week 
Hours  per  day 
Occupied 

4.     Requisitions. 

Since  supplies  are  an  essential  part  of  the  operation  of  every 
institution,  a  convenient  means  for  ordering  them  is  necessary. 
The  following  form  is  recommended,  but  should  be  printed  on 
paper  of  different  colors  so  that  the  color  may  indicate  the  fund 
out  of  which  the  bill  should  be  paid.    A  duplicate  of  the  requi- 
sition must  be  kept  in  the  principal 's  office ;  it  should  differ  in 
color  slightly  from  the  original  copy, 
a.     Order  number. 
6.    Name  of  fund  from  which  the  invoice  is  to  be  paid. 

c.  Name  of  firm  or  firms  from  which  the  items  may  be  secured. 

d.  Item  number. 

e.  Quantity  on  hand. 
/.     Quantity  required. 

g.     Description  of  articles. 

~k.    Purpose  for  which  the  article  is  desired. 


142 


Legislative  Control  of  State  Normal  Schools 


REQUISITION    FOR   SUPPLIES _. NO 

To  the  State  Board  of  Education: 

The  following  named  articles  are  needed  at  this  institution, 
livered  .. 


To  be  de- 


Purchase 
From 

Item 
No. 

Quantity 
on  hand 

Quantity 
Desired 

Description  of 
Article 

Purpose 

Estimated 
Cost 

5.     The  Pay  Roll.    The  pay  roll  should  list  the  following  items : 

a.  Name  of  the  employee. 

b.  Nature  and  amount  of  service  rendered. 

c.  Rate  per  month. 

d.  Amount  due  this  month. 

0.     Signature — received  in  full. 

/.     Principal's  report  of  absences. 

g.  The  back  of  the  report  should  show  a  recapitulation  of  the 
expenditures  under  appropriate  headings,  and  the  prin- 
cipal's affidavit. 

PAY  EOLL 


State  Board  of  Regents 


19. 


To  each  of  the  persons  hereinafter  named  for  services  rendered  under 
contract  with  said  board,  the  nature  and  particulars  whereof  are  herein 
specified. 


Name 

Nature  and  Amount  of 
Services  rendered 

Rate 
Per  month 
Per  day 

Total 
Due 

Deductions 

(Reverse  Side) 
Operation 
Principal  

Teachers  

Librarians  

Clerk*  

Engineers  

Janitor  ,  

Laborers  

I  hereby  certify,  &c. 
Prin. 

Results  of  Suggested  Provisions  143 

6.    Voucher  to  Accompany  Bills. 

A  voucher  should  accompany  all  bills  which  are  sent  to  the 
Board.  A  similar  one  may  be  used  by  the  firm  in  sending  in- 
voices to  the  school.  One  side  should  contain  the  sworn  state- 
ment; the  other  should  summarize  the  account  under  the  ap- 
propriate headings  according  to  the  system  recommended  for 
the  classification  of  accounts. 

State  of _ 

Board  of  Education  for  State  Normal  Schools. 

To   ~ ,  Dr. 

date 192 

(This  is  not  a  bill  and  should  be  accompanied  by  an  invoice.) 

For  Sundries  furnished  to - Normal  School 

as  per  attached  invoice  numbered $ 

State    of 

if _ 

(Post  Office) (State). 


County    of _ 


I,  - ,  Claimant  of  attached  invoice, 

do  solemnly  swear  that  the  charges  are  correct.  4 

Subscribed  and  sworn  to  before  me  this _ day 

of _ ,  19 


Signed. 
.Notary  Public 


My  commission  expires. 


I  hereby  certify  that  the  items  named  herein  have  been  furnished  to  this 
school,  and  that  no  part  has  been  paid. 


Principal 
REVERSE  SIDE 

1.     Capital  Expenditures.  3.     Operation. 

(all  main  headings  listed.)  (all  main  headings  listed.) 


2.     Maintenance. 

(all  main  headings  listed.) 


144 


Legislative  Control  of  State  Normal  Schools 


7.     Cash.  Expended. 

For  emergency  supplies  it  is  necessary  for  the  principal  to 
have  an  "Advance  Allowance"  to  be  kept  in  the  local  bank  and 
subject  to  his  check.  All  expenditures  from  this  fund  must  be 
reported  to  the  Board  before  he  can  be  reimbursed  for  the  ex- 
penditure. 
a.  Date. 

To  whom  paid. 

Time  or  quantity. 

Rate  or  price. 

For  what  purpose. 

Total  amount. 


CASH  EXPENDED  BY  PRINCIPAL 


19. 


Time 

Rate 

Dat 

Name 

or 

or 

For  What  Purpose 

Amount 

Quantity 

Price 

Results  of  Suggested  Provisions 
B.    FORMS  FOR  USE  IN  THE  BOARD'S  OFFICE 

1.  Quotation  Blank. 

This  blank  should  contain  the  following  items : 

a.  Quantity. 

b.  Mataerial — description. 

c.  List  price. 

d.  Discount. 

e.  Net  price. 

Board    of    Education.... 


145 


.19. 


(name  of  firm) 


GENTLEMEN  : 

Please  quote  your  lowest  price  on  the  items  listed  below: 
Prices  to  include  delivery  F.  O.  B. 
The  right  is  reserved  to  reject  any  or  all  bids. 
Give  full  description  of  articles  quoted  upon. 
No  charges  will  be  allowed  for  boxing  and  crating. 
Return  this  sheet  promptly. 


Quantity 

Material 

List  Price 

Discount 

Net  Price 

1 

I 

I 

J 

i 

146  Legislative  Control  of  State  Normal  Schools 

2.     Purchasing  Order. 

The  purchasing  order  is  made  out  by  the  Board's  purchasing 


agent  from  the  prices  quoted  by  the  various  firms, 
contain  the  following  items: 

a.  General  regulations  for  shipment. 

b.  Order  number — to  be  placed  on  all  bills. 

c.  Name  of  firm. 

d.  Name  of  school. 


It  should 


Purchasing  Order 

State  Board  of  Education 
Gentlemen : 

Ship  the  following  to 
State  Normal  School 


Terms F.  O.  R. 

Route  Via  ... 


Requisition  No 

(Put  this  No.  on  bill) 

CONDITIONS: 
Invoices  must  be  made  in  du- 
plicate,   and    accompanied    by 
sworn   voucher. 

No    allowance    for    crating    oi 
cartage. 

Prepay     freight    and     add    to 
bill. 
Place    order    No.    on    package. 


Quantity 

Description  of  Goods  Ordered 

Price 

Amount 

Results  of  Suggested  Provisions 


147 


3.     Appropriation  Ledger  Sheet. 

For  the  Board's  own  use  there  should  be  an  appropriation 
ledger  sheet  upon  which  to  record  all  appropriations  and  other 
receipts;  this  should  be  so  arranged  that  a  balance  could  be 
taken  at  any  time,  from  which  monthly  balances  could  be 
taken  regularly.  It  should  contain  the  amount  appropriated  by 
the  legislature,  or  the  amount  set  aside  by  the  Board  for  the 
school's  use,  the  total  of  previous  audits,  the  amount  from  other 
sources  from  which  money  is  received,  and  the  total  amount 
available.  Each  of  these  should  be  distributed  under  its  proper 
heading  according  to  the  classification  outlined. 

AVAILABLE  BALANCES 

STATE  NORMAL  SCHOOL 


Account 
No. 

Account 

Appropriated 
Current  Year 

Previous 
Audits 

This 
Audit 

Available 
Balance 

I. 

Capital   Expenditure* 

(List  here  the  sub-head- 

ing,.) 

II. 

Maintenance 

(Sub.  headings) 

, 

III. 

OptratioB 

(  Sab-heading*) 

148 


Legislative  Control  of  State  Normal  Schools 


4.     Expense  Ledger  Sheet. 

There  should  be  an  expense  ledger  sheet,  or  register  of  vouch- 
ers as  it  may  be  called.  There  should  be  one  for  each  of  the 
grand  divisions  of  the  plant ;  that  is,  one  for  the  normal  proper, 
one  for  the  dormitory,  one  for  the  training  school,  one  for  the 
administrative  office,  and  one  for  teachers'  institutes.  It  should 
show  the  available  appropriations,  the  number  of  vouchers,  the 
name  of  the  payee,  and  the  amount  under  its  proper  title  of  each 
grand  division.  In  order  to  save  space  only  one  is  reproduced 
here. 


VOUCHER  REGISTER 


Credits 

Debit* 

Voucher 

No. 

Name  of 
Payee 

Capital 

Mainten- 
ance 

Operation 

Appropriation* 

Sundry 
Appro. 

Capital 

Main- 
tenance 

Opera- 
tion 

Acct. 

Amt. 

Vertical    col- 
umns for  each 
sub-heading 

Vertical  col- 
umns for  each 
sub-heading 

Results  of  Suggested  Provisions 


149 


5.    Monthly  Financial  Statement. 

A  general  balance  sheet  should  be  made  by  the  bookkeeper 
from  the  appropriation  ledger  sheet,  and  from  this  a  monthly 
statement  made  and  sent  to  the  principal  of  the  school.  It 
should  contain: 

a.  Statement  of  the  available  appropriations  and  collections. 

b.  Balances  for  the  month  just  closed. 

c.  Receipts  during  the  month. 

d.  Disbursements  during  the  month. 

e.  Balances  to  be  expended. 

MONTHLY  FINANCIAL  STATEMENT 
_ State  Normal  School 

For  the  month  of _ 19 

Statement  of  current  year, months  remain  unpaid. 


Name  of  Fond 

Balances 
19... 

Receipts 
During 
Month 

Disbursements 
During  Month 

Balance* 
19... 

Disbursements  same 
month  last  year 

A. 

Appropriation* 

1.     Capital 

(Li»l  sub-head- 
ing') 

2.     Maintenance 

(  List   sub-head- 
ing..) 

3.     Operation 

(List  sub-head- 
ings.) 

B< 

Fees  Collected 

(List  sub-head* 
ings.) 

Totals 

Outstanding 
Bill* 

State  Auditors 

BalaB.ce 

150  Legislative  Control  of  State  Normal  Schools 

6.    Unit  Costs. 

From  the  attendance  report,  the  payrolls,  and  various  ledgers, 
a  statement  of  unit  costs  per  general  classification  may  be  made. 
In  a  normal  school  we  suggest  that  this  statement  be  made  an- 
nually or  semi-annually. 

COST  PER  PUPIL 


Nature  of 
Expense 

This  Month 
Semester 
Year 

Last  Month 
Semester 
Year 

Ayerage 

J 

Sub.hea  dings 
of 
Capital 

g 

I 

_B 

Sub-heading* 
of 
Maintenance 

! 

Sub-headings 
of 
Operation 

7.     Unit  Costs  per  Subject. 

If  the  teachers'  payroll  is  carefully  made  out,  it  is  possible  to 
secure  the  cost  per  subject.  To  distribute  the  capital  expendi- 
ture, cost  of  maintenance,  and  certain  operating  expenditures 
among  the  different  subjects  is  a  difficult  matter.  Probably 
about  the  best  that  can  be  done  is  to  make  an  apportionment  of 
such  costs  to  the  subjects,  charging  to  the  courses  which  require 
laboratories  and  large  supplies  the  cost  of  these  items. 
UNIT  COST  PER  SUBJECT 


Name 
of 
Subject 

Inventory 
of 
Equipment 
191  

Equipment  and 
Supplies  Pur- 
chased 

191... 

Space  Required 
in  Sq.   Ft.    Hours 
Per  Wk.  in  Use. 

Teachers 

Probable  Distri- 
bution of  Over- 
head  Expense 

No. 

Hrs. 

Salary 

Results  of  Suggested  Provisions 


151 


C.  FORMS  FOR  THE  BOARD'S  ANNUAL  REPORT 
In  addition  to  the  educational  features  of  the  annual  or  bi- 
ennial report,  which  are  usually  found,  there  should  be  certain 
financial  statements  which  will  serve  to  inform  the  public  con- 
cerning the  receipts  and  expenditures  of  the  school.  Such  ta- 
bles will  furnish  a  basis  for  the  public's  decision  regarding  the 
investment  and  returns  of  the  school. 

These  tables  should  contain  statements  setting  forth  the  kind 
of  normal  school,  i.e.,  whether  it  aims  to  prepare  elementary 
teachers,  high  school  teachers,  or  both;  whether  it  is  being  de- 
veloped into  a  teachers'  college,  with  courses  paralleling  univer- 
sity courses;  whether  some  students  are  pursuing  teachers' 
courses  and  some  taking  purely  secondary  courses.  In  order  to 
answer  these  and  other  questions  it  is  recommended  that  a 
statement  be  made  and  a  table  constructed  from  the  cash 
collected  report  on  students'  enrollment  as  per  the  following 
form: 

1.  Statement  of  Kind  of  School  and  Purpose. 

a.  Verbal  declaration  as  to  the  purpose  of  the  school. 

b.  Name  of  course. 

c.  Number  enrolled  in  course. 

d.  Amount  received. 

We,  the  members  of  the  State  Board  of  Education,  hereby  declare  that 
....State  Normal  School  aims  to.... 


Cash  Collected  From  Enrollment 


Name  of  Course 

No.    Enrolled 

Totil 

Amount  Received 

Boys 

Girl* 

Normal 

Secondary 

College 

Training  School 

152  Legislative  Control  of  State  Normal  Schools 

2.     Appropriations  and  Receipts  from  All  Sources. 

This  table  should  be  in  summarized  form,  but  should  have 
details  sufficient  to  indicate  the  proper  sources  of  all  receipts, 
a.    Name  of  funds  received  from  the  state. 
6.    Name  of  funds  received  from  fees. 
c.     Miscellaneous — gifts,  receipts  from  investments,  etc. 

APPROPRIATIONS  AND  RECEIPTS 


RECEIVED  FROM 

AMOUNT 

State  Appropriations 
Capital    

Operation  ...                 .... 

Fees 

Total  ... 

3.     Record  of  Drafts  for  the  Year. 

This  record  will  make  it  possible  for  the  public  to  trace  each 
item  of  expenditure  to  its  original  source.    It  should  include : 
a.    Date.  d.     For  what  object. 

6.    Number.  e.    Amount. 

c.     To  whom  paid. 

RECORD  OF  DRAFTS  FOR  THE  YEAR 


Date 

No. 

To  Whom  Paid 

For  What  Object 

Amount 

Results  of  Suggested  Provisions  153 

4.     Summary  of  Expenditures. 

There  should  be  a  summary  of  expenditures  according  to  the 
general  classification  suggested.  These  expenditures  should  be 
summarized  as  per  the  following  form : 

a.  Capital — with  the  sub-headings. 

b.  Maintenance — with  the  sub-headings. 

c.  Operation — with  the  sub-headings. 

SUMMARY  OF  EXPENDITURES 


Nature  of  Expense 

Current  Year 

Last  Year 

Average 

} 

Sub-Headings 
of 

Capita] 

Total 

1 

Sub-Headings 
of 

5 

Maintenance 

Total 

J 

Sub-Headings 
of 

° 

Operations 

Total 

GRAND 

TOTAL 

154 


Legislative  Control  of  State  Normal  Schools 


5.     Special  Personal  Service  Record. 

A  personal  service  record  may  be  made  according  to  the  fol- 
lowing form: 

PERSONAL  SERVICE  RECORD 


Name  of  Person 
Rendering  Service 

Description  of  Work 
Done 

Periods  per  Day 
or  Week 

Rate 

Salary 

6.     Enrollment  and  Graduation  Records. 

A.  There  are  oftentimes  many  questions  asked  concerning  the 
enrollment  of  a  school.  If  the  forms  herewith  recommended  are 
used,  many  of  these  questions  will  be  answered  at  sight.  The 
facts  contained  in  such  a  record  would  contribute  much  in 
answering  questions  as  to  the  service  rendered  by  the  school  to 
the  state. 

ENROLLMENT  AND  GRADUATION  RECORD 


Number  Enrolled 

Number  Graduated 

Name  of 
Course 

Current  Year 

Last   Year 

Current  Year 

Last  Year 

Normal 

Secondary 

College 

Total 

Results  of  Suggested  Provisions 

MAJOR  LINES  AND  DEPARTMENTS 

A. 

a.  Major  lines  of  activities. 

b.  Number  enrolled  each  term,  semester,  or  quarter. 

c.  Total. 

B. 

a.  Names  of  departments  (subjects). 

b.  Number  of  courses. 

c.  Number  of  credits. 

d.  Gross  enrollment. 


155 


FORM  A 

Major  Lines 

First  Semester 

Second  Semester 

Total 

Kindergarten 

Primary 

Intermediate 

Grammar 

Secondary 

Home  EC. 

Man'l  Tr. 

Agr. 

Rural 

Reviews  and  Sp. 

Unclassified 

* 

FORM  B 

Departments 
(Subjects) 

First  Semester 

Second  Semester 

Total 

Agriculture 

Biology 

Botany 

&c. 

156 


Legislative  Control  of  State  Normal  Schools 


7.     Graphs  and  Comparative  Tables. 

Since  reports  of  state  boards  generally  represent  more  than 
one  school,  graphs  and  tables  should  be  so  clearly  arranged  that 
the  public  may  see  at  a  glance  the  comparative  costs  and  returns 
of  each  school.  Facts  concerning  enrollment,  graduation  and 
instructional  costs  distributed  as  to  departments,  to  clock  hour 
loads  and  to  student  clock  hours,  should  be  set  forth. 


A. 


INSTRUCTIONAL    COST    PEE    DEPARTMENT 


Departments 

Direct  Charge 

Overhead 

Total 

Agriculture 

Biology 

Botany 

&c. 

B.                                 STUDENTS  CLOCK  HOUR  LOAD 

Departments 

Direct  Charge 

Overhead 

Total 

Agriculture 

Biology 

Botany 

&c. 

C.                            COST   PER   STUDENT   CLOCK  HOUR 

Departments 

Department  Coats 

Student  Clock  Hours 

Cost   Per 
Student 

Clock  Hour 

Results  of  Suggested  Provisions  157 

By  the  use  of  the  above  forms,  which  have  been  derived  from 
an  extensive  study  of  forms  now  in  use,  and  which  have  been 
constructed  in  harmony  with  the  foregoing  principles  of  clas- 
sification, it  is  believed  that  there  will  be  an  original  document 
for  each  transaction,  that  responsibility  for  the  expenditure  of 
appropriated  funds  may  be  fixed,  and  that  the  public  will  be 
able  to  judge  whether  it  is  receiving  proper  returns  on  its 
investment.  There  will  also  be  facts  for  measuring  the  ex- 
penditures and  returns  of  the  schools  represented  in  the  re- 
port of  any  board,  and  of  the  schools  of  similar  kind  wherever 
they  may  be  found. 


APPENDIX  A 
TYPE  REPORTS 

In  this  appendix  will  be  found  tables,  or  parts  of  tables,  taken 
from  the  annual  or  biennial  reports  of  state  normal  school 
boards.  They  represent  the  boards'  statements  to  the  public  of 
the  receipts  and  disbursements  of  the  schools.  As  far  as  I  have 
been  able  to  find  these  are  the  only  available  financial  statistics 
of  the  schools.  Copies  of  such  reports  have  been  collected  from 
practically  every  state  in  the  union,  and  from  different  schools 
within  the  same  state.  The  parts  given  below  are  intended  to 
show  the  form  of  financial  statement. 

TYPE  No.  1 

Type  No.  1  is  a  type  of  financial  report  published  by  many 
normal  school  boards. 

RECEIPTS 

Balance  as  per  report  to  General  Assembly $  13,080.47 

Maintenance    128,124.99 

Incidental   fees   12,066.50 

Other  fees  and  resources  follow,  making  a  total  of..$258,023.75 

EXPENDITURES 

.Contingent  fund  $     6,632.92 

Salaries,  faculty,  superintendent,  engineers,  etc 94,579.71 

General  repairs   and   improvements 2,220.31 

Balance  48,784.66 

TYPE  No.  2 

In  Type  No.  2  receipts  and  expenditures  are  listed  un- 
der four  different  headings,  viz.,  interest  and  income,  mill  tax, 
local  fund,  and  appropriations.  Since  no  summary  is  given  a 
great  amount  of  adding  is  necessary  before  even  the  total  re- 
ceipts and  expenditures  can  be  found.  Parts  of  the  same  bill  are 
paid  from  different  funds,  a  fact  which  makes  necessary  a 
reading  of  the  entire  report  to  find  the  total  amount  of  the 
bill  in  question.  A  list  of  the  checks  issued  is  given, 
together  with  the  number,  date,  to  whom  paid,  and  the 


Type  Reports  159 

amount;  nothing  is  said  about  what  the  check  was  issued  for. 
So  far  as  real  information  is  concerned  this  report  covering 
twenty  pages  might  as  well  be  omitted. 


TYPE  No.  2 

INTEREST  AND  INCOME 
Receipts 

Balance  June  30,  1910 _ $9,112.03 

Warrants,  June,   1920 1,853.89 

(seven  other  items  follow) 

Expenditures 

Library  and  reading  room $315.08 

Textbooks   658.40 

(fourteen  other  items) 

MILL  TAX 
Eeceipts 

Balance  June  30,  1910 _ $30,765.32 

Warrants,  June,  1910 486.92 

Expenditures 

Salaries  $58,274.82 

Library  and  reading  room ~ —        238.41 

LOCAL  FUND 

Eeceipts 

Balance  June  30,  1910  $18,855.17 

Registration   fees   2,395.25 

Expenditures 

Boarding  department  $25,613.01 

Incidentals    - 14,941.86 

APPROPRIATIONS 

Eeceipts 

Students '  hospital   $10,000.00 

Reimbursements    ..._ - - 9,399.31 

Total  (including  six  other  items) 31,899.31 

Expenditures 

Students'   hospital  $  9,957.00 

Reimbursements    - .....9,399.31 

(seven  other  general  items) 

CHECKS 

No.  Date  To  whom  paid 

4116  7/8/1910  John  Doe  1.20 


160          Legislative  Control  of  State  Normal  Schools 

TYPE  No.  3 

Type  No.  3  seems  complete,  but  it  is  found  upon  more  care- 
ful examination  to  show  very  little  about  where  the  money 
really  goes.  First,  there  is  a  general  statement  of  balances,  the 
amount  received  from  the  state  treasurer,  the  total  disburse- 
ments and  the  final  balances.  These  are  given  under  ten  differ- 
ent headings  with  no  final  summary.  Here  again  one  must  do 
considerable  adding  to  find  the  grand  total  of  receipts  and 
expenditures.  To  find  the  expenditure  for  any  one  thing  would 
require  a  great  amount  of  time.  The  disbursements  for  salaries 
of  officers  and  teachers  are  clear,  yet  nothing  is  given  to  indicate 
the  service  that  each  performs. 

DISBURSEMENTS  FOR  SALARIES  OF  OFFICERS  AND  TEACHERS 

John  Doe  $7,759.00 

(Names  of  all  employees  follow) 

FOR  SCIENCE  APPLIANCE  AND  SUPPLIES 

Jan.  1,  1911.     Balance  on  hand $          .68 

Received  from  state  treasurer 6,115.00 

Disbursements  6,155.58 

Dec.  31,  1913.     Balance  due  treasurer _ 39.90 

(Same  general  statement  for  ten  items) 

TYPE  No.  4 

Type  No.  4  is  a  form  of  condensed  report  and  is  fairly  clear. 
It  is  given  in  a  report  with  other  normal  schools  and  there  is  a 
slight  opportunity  for  comparison  of  expenditures,  though  no 
comparison  is  made. 

RECEIPTS 
(Statement  of  income  from  several  different  sources) 

CLASSIFIED  EXPENDITURES 

Current  expenses:  1910-11  1911-12 

Salaries    $12,598.11         $51,963.50     Total 

(Other  items  as  furniture,  telephone,  etc.) 

TYPE  No.  5 

Type  No.  5  shows  a  feature  not  shown  by  the  others  re- 
ferred to  in  that  it  gives  the  number  of  pupils  enrolled.  An 
opportunity  is  thereby  given  for  a  per  capita  cost  calculation, 


Type  Reports  161 

but  the  report  does  not  attempt  such  calculation.  The  receipts 
and  expenditures  are  given  in  such  a  condensed  form  that  the 
tables  are  practically  worthless  and  furnish  little  information 
valuable  to  anyone. 

Enrollment    regular    session — First    year — Second    year — etc. 
"  Summer  Session       "         "  '<  "       " 

RECEIPTS,   (STATE  APPROPRIATIONS) 

1910-11        1911-12 
Received  from  state  „ $39,000        $51,000 

EXPENDITURES,  (STATE  APPROPRIATIONS) 

Support   and  maintenance,   salaries „ $25,400  $36,693 

Salaries  of  teachers  of  indus.  subjects 4,050  3,000 

Books,  apparatus,  equipment,  repairs,  and 

improvements    3,000  3,000 

TYPE  No.  6 

Type  No.  6  shows  in  detail  the  receipts  of  the  school  under 
date  of  each  receipt,  number,  of  whom  received,  amount,  and 
total.  The  checks  for  each  expenditure  are  listed  as  in  Type 
2,  with  the  addition  of  the  object  for  which  the  check  was 
given.  This  information  should  exist  in  the  office  of  the  board, 
but  it  is  questionable  whether  it  should  have  the  space  in  the 
report.  No  advantage  is  taken  of  the  opportunity  the  data  fur- 
nish for  statements  of  unit  costs. 

RECEIPTS 

August  19,  1910 995 Interest  on  land  grant....$12,083.33 

(All  receipts  follow  in  like  form) 

EXPENDITURES 
July  29,  1910 11631 John  Doe....extra  labor $91.14 

TYPE  No.  7 

Type  No.  7  gives  a  report  on  eight  schools  for  a  biennium. 
Each  school  is  listed  separately,  the  students  are  classified  ac- 
cording to  kind  and  grade,  and  the  number  of  graduates  given 
for  each  school  year.  It  is  fairly  condensed  for  the  receipts 
and  expenditures  are  given  including  teachers  and  employees. 
In  the  report,  however,  nothing  is  made  of  the  opportunity  for 
comparisons. 


162  Legislative  Control  of  State  Normal  Schools 

ENROLLMENT 

School  381  normal  44  grammar,  etc. 

(eight  schools  are  listed) 

Graduates  212  total  (detail  classification) 

(eight  other  schools  listed) 

RECEIPTS 

Interest  on  land  certificates $61.04     $70.55 

EXPENDITURES 
Salaries,  etc _ $41,270.00  etc. 

TYPE  No.  8 

The  report  from  which  Type  No.  8  was  taken  contains  the 
financial  statements  of  six  normal  schools  and  twenty-eight 
other  state  institutions.  The  income  is  given,  the  enrollment, 
pay  roll  of  teachers  and  employees,  and  a  classification  of  ex- 
penditures as  shown  by  the  table.  The  distinctive  feature  of 
this  type  is  the  attempt  made  to  calculate  the  per  capita  ex- 
penditure, and  to  furnish  a  basis  for  comparison  among  the 
schools  of  the  state.  This  type  omits  some  of  the  good  fea- 
tures found  in  Type  No.  7. 

BIENNIAL  REPORT  OF  STATE  BOARD 

Per  Per 

For  What  Expended                            1911           capita  1912  capita 

Salaries  regular  _...$12,670.65     $58.12  $12,613.33  $54.84 

Salaries,  extra  341.71         1.57  519.24  2.26 

Labor 49.57           .23  164.45  .71 

Traveling   expenses 64.60           .29  146.07  .63 

(fifty-five  other  items  follow) 

From  the  many  reports  which  the  writer  has  collected  and  ex- 
amined, of  which  the  eight  described  are  types,  it  is  evident  that 
these  reports  are  far  from  being  clear  to  the  average  business 
man  to  say  nothing  of  the  average  citizen.  As  a  rule,  they  give 
but  little  information  concerning  the  efficiency  of  the  school,  the 
exact  expenditures,  and  show  less  regarding  the  returns  which 
the  public  is  getting  upon  its  investment.  There  is  no  uniform- 
ity among  the  states,  and  in  only  a  few  cases  is  there  uniform- 
ity among  the  schools  of  the  same  state.  These  deficiencies  make 
it  difficult  for  the  public  to  draw  safe  conclusions  as  to  real 
needs  of  state  normal  schools  or  their  actual  value. 


APPENDIX  B 
COMPARATIVE  COSTS 

When  the  writer  first  conceived  the  idea  of  making  a  study  of 
normal  schools  it  was  with  reference  to  unit  costs  and  other 
problems  relating  to  finances.  Only  a  little  thought  and  inves- 
tigation were  given  to  that  until  it  became  evident  that  such  a 
study  was  not  possible  because  the  proper  data  could  not  be 
secured ;  upon  further  investigation  it  was  found  that  such  data 
did  not  exist  to  any  great  extent  in  these  institutions.  Scraps  of 
what  seemed  to  be  comparable  upon  first  examination  were  col- 
lected, but  these  proved  to  be  useless  for  all  practical  purposes. 

It  was  readily  seen  that  the  chief  difficulty  in  dealing  with 
what  was  available  was  found  to  be  the  lack  of  classification. 
For  example,  "athletics"  and  "gymnasium"  are  by  no  means 
synonymous  terms  as  a  title  for  all  items  of  expenditure  relat- 
ing to  this  school  activity.  Items  given  in  a  report  under  the 
title  of  "gymnasium"  may  be  for  repairs  and  improvements 
on  the  gymnasium,  for  equipment,  for  athletic  exercises  in  the 
gymnasium,  or  for  two  or  more  of  these.  Likewise,  "salaries" 
is  not  synonymous  with  "faculty";  "salaries"  probably  in- 
cludes all  who  were  employed  in  the  institution,  but  there  was 
nothing  in  these  reports  to  assure  one  of  this.  Item  "expendi- 
tures for  departments"  cannot  be  interpreted  by  any  one  not 
familiar  with  the  particular  institution  for  which  the  report 
was  made;  also,  "improvements"  is  such  a  general  title  that 
almost  any  kind  of  expenditure  may  be  classified  under  it. 
"Postage,"  "printing,"  and  "advertising"  may  be  for  the  ex- 
ecutive office,  for  the  catalog,  or  for  general  advertising.  Under 
"miscellaneous,"  "incidental"  and  "special"  all  manner  of  ex- 
penditures are  found.  Such  titles  for  expenditures  are  abso- 
lutely unintelligible  to  the  public;  it  may  be  impossible  to  get 
along  without  such  a  title  in  a  report,  yet  if  the  total  expendi- 
tures thus  classified  amount  to  a  large  sum  it  should  be  taken 
as  evidence  of  careless  accounting. 


164  Legislative  Control  of  State  Normal  Schools 

The  exhibits  given  in  this  Appendix  are  not  given  for  any 
value  they  have  in  themselves,  but  merely  to  indicate  a  few 
things  which  might  be  done  if  statistics  were  available,  as  sug- 
gested in  Chapter  IV  of  this  study.  The  writer  has  had  to  do 
a  great  deal  of  reclassifying  and  interpreting  in  order  to  make 
the  items  seem  at  all  comparable. 

If  the  statistics  were  accurate,  and  the  results  were  as  they 
are  shown  to  be  by  these  tables,  it  is  safe  to  say  that  in  many 
instances  normal  school  administrators  would  find  more  effi- 
cient ways  of  conducting  their  institutions.  For  example,  in 
one  state  the  median  expenditure  per  capita  for  salaries,  wages, 
and  labor,  is  $134.85,  while  in  another  state  it  is  $60.71,  or  less 
than  half  the  former  sum.  (Exhibit  I)  A  still  greater  difference 
is  seen  between  these  two  states  in  the  total  expenditures  per 
capita.  A  marked  similarity  holds  among  the  different  schools 
of  the  same  state,  yet  in  some  cases  there  is  sufficient  variability 
to  require  investigation  by  those  in  charge.  In  Exhibit  III 
school  "West  Liberty"  is  $15.08  above  the  state's  median  ex- 
penditure for  salaries,  wages  and  labor,  while  school  "Marshall" 
is  $15.03  below  the  median.  The  explanation  for  this  is  that 
West  Liberty  is  a  school  with  fair  equipment,  but  has  a  small 
attendance  due  to  its  location ;  while  Marshall  has  a  much  larger 
enrollment.  Question:  Can  a  state  afford  to  continue  small 
schools  in  isolated  communities?  In  Exhibit  IV,  however,  it  is 
found  that  even  this  small  school  falls  below  the  median  for 
the  three  states  in  respect  to  this  item  of  expenditure. 

The  difference  in  the  state  medians,  and  the  large  variability 
of  expenditures  among  the  schools,  cannot  all  be  explained  upon 
the  point  of  enrollment.  Some  normals  are  content  to  be  schools 
for  the  training  of  elementary  teachers;  others  are  largely  sec- 
ondary schools  with  courses  paralleling  the  high  school  courses, 
and  giving  very  little  professional  training;  still  others  are 
training  high  school  teachers,  while  some  are  trying  to  rival  col- 
leges and  state  universities.  All  these  ideals  affect  the  cost  of 
maintenance,  and  must  be  known  before  a  fair  comparison  of 
expenditures  can  be  made. 

Exhibit  V  is  a  brief  outline  of  the  work  of  the  Joint  Board  of 
Higher  Curricula  of  the  State  of  Washington.  This  board,  as 


Comparative  Costs 


165 


EXHIBIT  I 

EXPENDITURES  PER  CAPITA 


Salaries 
Wages 
and 
Labor 

Fur- 
nish- 
ings 

Heat 
Light 
and 
Power 

Rep'  rs 
and 
Im- 
prove- 
ments 

Gr'ds 

Sup- 
plies 
Norm'l 
School 

Sup- 
plies 
Tr'g 
School 

Sup- 
plies 
Office 

Misc. 

Total 

Expense 

Bridgewater  .  .                    ... 

$135.33 
180.03 
130.39 
166.63 
177.92 
203..09 
121.58 
134.38 
127.10 
128.06 

$  5.84 
4.03 
3.33 
3.43 
4.46 
6.25 
3.20 
4.31 
13.76 
88 

$21.44 
18.80 
14.90 
17.03 
6.99 
34.70 
7.81 
22.34 
8.39 
5  03 

$3.33 
20.26 
17.45 
57.88 
6.45 
28.70 
7.99 
17.77 
16.04 
1  78 

$     .78 

2.69 
1.48 
1.40 
1.93 
3.35 
1.37 
.57 
1.61 

$  7.30 
7.38 
9.19 
9.39 
13.31 
13.38 
8.79 
12.81 
13.03 
3  05 

$  2.20 
5.52 
.49 
.41 
9.46 
4.01 
5.04 
1.08 
.72 

$  3.62 
3.31 
3.49 
4.20 
3.03 
3.74 
3.72 
4.57 
7.73 
2.30 
3.67 

$  2.68 
4.74 
2.81 
6.31 
6.39 
8.43 
5.68 
4.00 
7.00 
3.48 
5.20 

$194.50 
248.03 
270.25 
270.75 
229.87 
308.23 
135.58 
202.86 
195.77 
143.58 
199.31 

Fit  hburg  
Framingham  

Hyannia 

LowelL  „  

No.  Adams 

S&lem 

Westfield  _ 

Worcester 

Normal  Art           .   

Median 

134.85 

4.17 

15.96 

16.74 

1.49 

9.29 

2.20 

Athens 

60.09 

10.05 

5.40 

6.28 

3.24 

1.07 
1.49 
1.32 
.81 
1.07 
1.34 
1.19 

6.21 
3.22 
8.16 
3.61 
3.86 
5.43 
4.64 

99.73 
72.38 
80.30 
87.80 
100.32 
62.72 
84.05 

Shepherdstown  

61.34 

.66 

1.16 

6  44 

3.54 

Glenville 

51.99 

.49 

1.96 

.22 

2.20 

West  Liberty  

75.79 
67.31 

.09 
.16 

3.32 
4.06 

.63 
.21 

.40 

Fairmont 

1.69 

Marshall 

45  68 

45 

3  17 

2  49 

69 

Median  

60.71 

.47 

3  24 

1  56 

1  94 

La  Crosse_  _  

81.46 

2.53 

9.71 

5.06 

14.67 

3.13 

.69 
.70 
.60 
.44 
.60 
.52 
.22 
.39 
.52 

9.23 
6.80 
6.16 
6.28 
3.54 
11.54 
6.90 
7.23 
6.35 

86.34 
61.60 
77.23 
81.23 
92.90 
117.96 
132.26 
113.62 
89.62 

Mikwaukec 

60.80 
75.60 

4.36 
.73 

3.72 
5  66 

1.00 
1  62 

1.09 
16  85 

.96 
2.34 



Oshkofih 

Platteville 

80.28 
74.04 

1.69 
1.16 

7.51 
4  11 

1.21 
1  27 

9.67 
1  04 

2.37 
2  82 



River  Falls.. 

Stevens  Pt. 

90.46 
66.30 
83.32 
77.94 

.77 
3.71 
4.89 
2.11 

7.25 
4.23 
6.37 
6.01 

2.36 
1.29 
2.47 
1.49 

.56 
14.19 
.39 
5.38 

3.59 
2.77 
1.40 
2.57 

HZ 

Superior 

Whitewater 

Median 

EXHIBIT  II 

MEDIANS  FOR  THE  THREE  STATES  REPRESENTERFD  BY  24  SCHOOLS 


Salaries 
Wages 
and 
Labor 

Fur- 
nishings 

Heat 
Light 
Power 

Repairs 
and 
Improve- 
ments 

Grounds 

Sup- 
plies 

Normal 
School 

Sup- 
plies 
Training 
School 

Supplies 
Office 

Miscel 

Total 

$82.39 

$3.26 

$6.68 

$3.77 

$1.48 

$3.18 

$2.20 

$1.33 

$6.18 

$115  75 

166 


Legislative  Control  of  State  Normal  Schools 


EXHIBIT  III 

SHOWING  EACH  SCHOOL'S  DEVIATION  FROM  THE  MEDIAN  OF  THE  STATE  IN  WHICH  IT 

IS  LOCATED 


Salaries 
Wages 
and 
Labor 

Fur- 
nish- 
ings 

Heat 
Light 
and 
Power 

Rep'rs 
and 
Im- 
prove- 
ments 

Gr'ds 

Sup- 
plies 
Norm'l 
School 

Sup- 
plies 
Tr'g 
School 

Sup- 
plies 
Office 

Misc. 

Total 
Expense 

$    0.58 
45.18 
4.46 
21.78 
43.07 
68.24 
13.27 
.47 

S  1.67 
.14 
.83 
.74 
.29 
1.08 
.97 
.14 

$  5.48 
2.48 
1.06 
1.07 
8.97 
18.74 
8.15 
6.38 

$3.41 
3.52 
.71 
41.14 
10.29 
11.96 
8.75 
1.03 

f    .71 

1.20 
.01 
.00 
.45 
1.86 
.12 
.92 

$  1.99 
1.91 
.10 
.10 

4.02 
4.09 
.50 
3.42 

$     .00 

3.31 
1.79 
1.79 
7.27 
1.81 
2.85 
1.12 

$     .05 

3.6 
.18 
.53 
.64 
.07 
.05 
.90 

$  2.53 
.47 
2.40 
1.10 
1.18 
3.42 
.47 
1  14 

$    4.72 
48.72 
14.56 
70.94 
30.56 
108.92 
53.75 
3  53 

Fitchburg  

Hyannis  

North  AHftms 

Salem.  
Westfield  

Worcester  _. 

7.75 
6.79 

9.59 
3.29 

7.57 
10.93 

.70 
14.96 

.12 

3.74 
6.24 

1.52 

4.06 
1.36 

.12 
.30 
.13 

.38 

1.99 
1.87 

1.60 
1.44 
3.52 
99 

3.54 
55.73 

15.68 
5.60 
3.75 
3.75 
16.27 
23.33 

21.65 
28.02 
12.39 
8  39 

Nnnpal  Art       -,,      .,,  . 

Athens  

.62 

9.58 

2.16 

4.72 

1  30 

Shepherdstown  
Glenville..  

West  Liberty  

.63 
8.72 
15.08 

.19 
.02 
.38 

2.08 
1.28 
.18 

4.88 
1.34 
.93 

1.60 



.26 
1.54 

Fairmont  _.  

6.60 

.31 

.82 

1.35 

25 

.12 
.15 

.17 
.18 
.08 
.00 

.78 
.79 

2.38 
.05 
.72 
55 

Marshall 

15.03 

.02 

.07 

.93 

1.25 

La  Crosse    ...  .       _.        

3.52 

.42 

3.70 

3.61 

9  29 

56 

Milwaukee  

17.14 

2.25 

2.29 

.45 

4.20 

1.61 

Oshkosh        .            .      

2.34 

1.38 

.35 

.17 

11.47 

23 

Platteville  

2.34 

.42 

1.50 

.24 

4.29 

.20 

River  Falls                    

3.90 

.95 

1.90 

.18 

4  34 

.25 

.14 
.00 

3.31 
4  69 

3.28 
28  28 

Stevens  Point  

12.52 

1.34 

1.24 

.91 

4.82 

1.02 

Superior 

11.64 

1.60 

1.78 

.16 

8.81 

.20 

.30 
.13 

.05 
.43 

42.64 
24.00 

Whitewater  

5.38 

2.78 

.36 

1.02 

4.99 

1.16 

EXHIBIT  IV 
SHOWING  EACH  SCHOOL'S  DEVIATION  FROM  THE  MEDIAN  OF  THE  THREE  STATES 


Salaries 
Wages 
and 
Labor 

Fur- 
nish- 
ings 

Heat 
Light 
and 
Power 

Rep'rs 
and 
Im- 
prove- 
ments 

Gr'ds 

Sup- 
plies 
Norm'l 
School 

Sup- 
plies 
Tr'g 
School 

Sup- 
plies 
Office 

Misc. 

Total 
Expense 

Bridgewater  _  

$  52.94 
97.64 
48.00 
84.24 
95.53 
120.70 
39.19 
51.99 
44.71 
45  67 

$  2.58 

.77 
.07 
.17 
1.20 
2.99 
.06 
1.05 
10.70 
2  38 

$14.76 
12.12 
8.22 
10.35 
.31 
28.02 
1.13 
12.66 
1.71 
1  65 

S  9.56 
16.49 
13.48 
54.11 
2.68 
24.92 
4.22 
14.00 
12.27 
1  99 

$    .70 

1.21 
.00 
.01 
.45 
1.87 
.11 
.91 
.13 

S  4.12 
4.20 
6.01 
6.21 
10.31 
13.20 
5.61 
9.63 
12.85 
.13 

$     .00 
3.31 
1.91 
1.79 
7.26 
1.81 
2.84 
1.12 
1.48 

$  2.29 
1.98 
2.16 
2.87 
1.70 
2.41 
2.39 
3.24 
6.40 
.97 

.26 
.16 
.01 
.52 
.26 
.01 

.64 
.63 
.70 
.89 

$  3.50 
1.44 
3.37 
.13 
.21 
2.45 
.50 
2.11 
1.02 
2.70 

.06 
2.98 
1.98 
2.53 
2.32 
.75 

3.05 
.62 
.05 
..10 

$  78.84 
132.28 
69.00 
154.50 
114.12 
192.43 
19.88 
87.11 
80.02 
27.83 

16.02 
37.39 
35.45 
27.95 
15.43 
53.03 

29.41 
53.15 
38.52 
34.52 
22.85 
2.25 
16.51 
2.13 

Fitchgurg  

Framingham 

Hyannis  „  
Lowell          .. 

Salem  
Westneld  
Worcester  

Normal  Art 

Athens 

22.30 

6.79 

1.28 

2.51 

.06 

Shepherdstown.  _  

21.05 

2.60 

5.52 

2.67 

.36 

Glenville  
W«it.  T,ih«rty 

30.40 
6  30 

2.77 
3  17 

4.72 
3  36 

3.55 
3  14 

.98 

2.78 

Fairmont  

MarphftH 

15.08 
36.71 

3.10 
2.81 

2.62 
3.51 

3.56 
1.28 

1.49 

2.49 

La  Crosse 

.93 

.73 

3  93 

1.29 

13.19 

.05 

Milwaukee  

Oshkosh. 

21.59 
6.79 
2.11 

1.10 
2.73 
1.57 

2.96 
1.02 
.83 

2.77 
2.15 
2.56 

.39 
15.37 
8.19 

2.22 
.84 
.81 



Platteville          ...   _  

River  Falls  

Stevens  Pt 

8.35 
3  07 

2.10 
2  49 

2.57 
57 

2.50 
1  41 

.40 
.98 

.36 
.41 



.67 
.81 
1.11 
.94 

2.54 
5.36 
.72 
1.10 

Superior              ,,,,,, 

16.09 
.93 

.45 
1.63 

2.45 
.31 

2.48 
1.30 

12.71 
1.09 

.41 
1.77 



Whitewater...     .  _  

Comparative  Costs  167 

may  be  seen  in  graph  "Washington,"  page  76,  is  made  up  of 
the  president  of  the  University  of  Washington,  two  regents  of 
that  university,  the  president  of  the  State  College  of  Washing- 
ton, two  regents  of  the  college,  the  president  of  one  of  the  state 
normal  schools,  and  one  trustee  from  each  of  the  boards  of 
trustees  of  the  other  two  normal  schools.  The  purpose  of  the 
Joint  Board  is  to  consider  matters  of  efficiency  and  economy  in 
the  administration  of  the  institutions  represented.  This  is  by 
far  the  most  significant  report  found  in  this  investigation,  and 
is  recommended  to  boards  controlling  state  normal  schools  and 
other  teacher  training  agencies.2 

The  statistical  reports  are  given  under  the  following  headings : 
I.     Income,  receipts  and  expenditures.    (For  each  institution 

concerned. ) 

Table  1.     Sources  of  income. 

Table  2.     Summary  of  receipts  and  expenditures. 
II.     General  and  claass  census  enrollments. 
Table  3.     General  census  enrollments. 
Table  4.     Class  census  enrollment. 

III.  Cost  of  instruction — regular  academic  year. 

Table  5.     Instructional  cost  distributed  to  departments. 
Table  6.     Student  clock  hour  load. 
Table  7.     Cost  per  student  clock  hour. 
Table  8.     Yearly  cost  per  major  student. 

IV.  Cost  of  instruction — summer  session. 

Table  9.     Regular   academic  year  and  summer  session 

compared. 
V.     Classified  expenditures. 

Table  10.     Individual  institutions, 
on  pages  168  and  169  of  this  study. 


'The  First  Biennial  Report  of  the  Joint  Board  of  Higher  Curricula  for 
the  State  of  Washington. 


168 


Legislative  Control  of  State  Normal  Schools 


EXHIBIT  V 

COMPARATIVE  TABLE  5-b—  INSTRUCTIONAL  COST  DISTRIBUTED  TO  DEPARTMENTS,  NORMAL  SCHOOLS,  1917-18 

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Physical  education  
Physical  science  

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Arts  and  handicraft  
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Business  education  and  coi 
Education  
English  
Forestry  and  nature  study 
Geography  _.. 

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Comparative  Costs 


169 


artmen 
Cost 


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VITA 

The  author  of  this  dissertation,  Lawrence  Benjamin  Hill,  was 
born  November  16, 1876  at  McKim,  Tyler  County,  West  Virginia. 

ACADEMIC  TRAINING: 

Rural  school  1884  to  1894 ;  State  Normal  School  at  Hunting- 
ton,  W.  Va.,  1897  to  1900,  diploma;  West  Virginia  Uni- 
versity 1903  to  1906 ,  A.  B. ;  Scholar,  University  of  Nebras- 
ka, 1906-07,  A.  M. ;  Scholar,  Teachers  College  Columbia 
University,  1907-08;  Fellow,  Teachers  College,  Columbia 
University,  1912-13;  attended  Teachers  College,  Columbia 
University,  summer  session,  1920. 

PROFESSIONAL  EXPERIENCE  : 

Taught  rural  school  1894-98;  Principal,  ward  city  school, 
1898-99 ;  Superintendent,  city  schools,  1900-1903 ;  Principal, 
Tyler  County  High  School,  1908-1912 ;  President,  State  Nor- 
mal School,  Athens,  W.  Va.,  1913-18 ;  Associate  Professor  of 
Education,  West  Virginia  University,  1918-20;  Professor 
of  Education,  West  Virginia  University,  1920 — 


H 


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